中国土壤污染防治地方立法思路与探索——以广东省为例

Local Legislation Thinking and Exploration for Soil Pollution Prevention and Control in China: Taking Guangdong Province as Example

污染防治地方立法在生态环境工作中肩负着重要的使命,是高度概括和抽象的国家上位法的有效补充,具有更强的可操作性和地域特色。《广东省固体废物污染环境防治条例》、《广东省珠江三角洲水质保护条例》等地方单行法均在具体的污染防治工作中发挥了重要作用。本文在系统梳理了若干国家和地区土壤污染专门立法、配套法规与标准、外围法规及其典型特征的基础上,全面分析和对比了新颁布的《中华人民共和国土壤污染防治法》的立法现状和制度设计,认为中国土壤污染防治法是涵盖预防和治理的复合型专门法规且需与外围立法耦合发挥实效,确立了以土地用途为导向的污染土壤管控与利用策略,并强化水土耦合的协同治理思想。广东省作为土壤污染立法先行省份之一,起草完成了《广东省土壤污染防治条例(草案)》,草案在承继国家上位法相关要求的基础上,更侧重贯彻实施,并在源头预防、责任体系构建、联动监管、区域特异性管控方面进行了完善和创新,增强了地方立法的可操作性和地域特色。此外,针对土壤污染高背景区域识别和管控、土壤环境备案制度界定及实施、固定额度罚款制度建设等土壤污染实际问题展开讨论,认为地方立法还需进一步界定相关概念,配套有关政策措施,探索更加灵活的财产罚机制。分析表明,在中国土壤污染形势严峻以及相关基础薄弱的条件下,《中华人民共和国土壤污染防治法》为土壤污染防治相关工作提供了建设性和针对性的制度方案,而广东省土壤污染防治地方立法的探索为推进广东省土壤污染防治工作提供了强有力的依据和保障。该研究可为中国土壤污染防治决策管理和土壤污染防治法律体系构建提供有意义的参考和借鉴。

Local legislation shoulders an important mission in the work concerning ecological environment.As an effective supplement to the highly generalized and abstract national higher-level law,it is more practical and has more regional characteristics.The“Regulations on Prevention and Control of Solid Waste Pollution in Guangdong Province”,“Regulations on Water Quality Protection in Pearl River Delta of Guangdong Province”,and other local special regulations have played an important role in specific work of pollution prevention and control.On the basis of systematically reviewing the special legislation on soil pollution in several countries and regions,as well as the relevant supporting regulations and standards,peripheral regulations,and its typical characteristics,this paper comprehensively analyzes and compares the legislative status and system design of the newly issued“Soil Pollution Prevention and Control Law of the People's Republic of China”,and believes that the special law on soil pollution prevention and control in China is a comprehensive regulation covering prevention and management,which needs to be coupled with peripheral legislation to be effective.The land use-oriented control and utilization strategy on polluted soil is established,and the coordinated management of water and soil is strengthened.As one of the pioneering provinces of soil pollution legislation,Guangdong drafted the“Regulations on Prevention and Control of Soil Pollution in Guangdong Province(Draft)”,which is based on the relevant requirements of the national higher-level law and focuses more on implementation.It makes improvement and innovation in source prevention,responsibility system construction,linkage supervision,and regional specific control,and enhances the practicability and regional characteristics of local legislation.In addition,this paper discusses the practical problems of soil pollution,such as identification and control of soil pollution high-background areas,the definition and implementation of the soil environmental filing system,and the fixed property penalty mechanism,and suggests that local legislation needs further improvement in defining relevant concepts,formulating supporting policies and measures,and developing a more flexible property penalty mechanism.The article shows that,with the severe situation of soil pollution and weak technological capability,“Soil Pollution Prevention and Control Law of the People's Republic of China”has provided a constructive and targeted institutional scheme for soil pollution prevention and control,and the exploration of local legislation on soil pollution prevention and control in Guangdong Province provides a strong basis and guarantee for the advancement of soil pollution prevention and control in Guangdong Province.The analyses and viewpoints in this paper will provide meaningful references for the decision-making management and legal system construction of soil pollution prevention and control in China.