城镇污水集中处理单位超标排污的责任分配机制研究

Study on Responsibility Allocation Mechanism of Urban Sewage Centralized Treatment Unit for Excessive Discharge

当前,城镇污水排放呈现"分排"与"混排"模式并存的局面,而污水处理单位兼具"排污者"与"治污者"的双重身份属性,是不容回避的客观事实。透过城镇污水集中处理的两种情形会发现,污水处理单位"兜底式背锅"担责窘境的形成,源自于将责任分配嫁接在了城镇污水集中处理实际运行情形下形成的一种错误认知。有鉴于此,应充分遵循"损害担责"、"预防为主、综合治理"和"保护优先"的环境法三大基本原则之旨趣,通过明晰污水处理单位与政府有关主管部门、上游排污单位之间的责任分配,在法律系统内部构建责任分配机制。通过加快制定出台促进智慧水务发展和污水处理特许经营项目管理的规范性文件,在法律系统外部构建配套机制,以此实现污水处理单位超标排污责任分配的规范调整,完成兼具"合法性"与"合理性"的责任分配机制的构建。

At present,the urban sewage discharge presents a pattern of"separate discharge"and"mixed discharge",and the sewage treatment unit is both"polluters"and"pollution control"dual identity,which is an objective fact that cannot be avoided.The"standard group"represented by the"Water Pollution Prevention and Control Law"tries to improve the national sewage treatment capacity and level by simply strengthening the legal responsibility of sewage treatment units.However,breaking the balance of legal responsibility distribution of all parties in the sewage treatment chain has become the"by-product"that this idea has to face.In view of this,it is urgent to integrate the legal relations behind the actual operation mirror image,comb the interaction and game between multiple subjects,and explore the objective function of each party’s behavior in the centralized urban sewage treatment.Based on this,fully follow the purport of the three basic principles of"damage responsibility","prevention first,comprehensive treatment"and"protection first",and reshape the responsibility distribution mechanism of sewage treatment units in the sense of national governance modernization.