近代上海公共租界煤烟污染治理的实践与困境(1863—1943)

The Practice and Predicament of Soot Pollution Governance in Shanghai International Settlement,1863-1943

近代上海的煤烟污染日趋严重,并已引起公共租界不同社会主体的关注和治理。基于不同利益的考量,不同社会主体的治理举措存在很大差异。社会民众中有厌恶煤烟污染并投诉违规企业者,亦有支持或默认煤烟污染者,同时多数时候只能被迫忍受煤烟污染带来的危害与不便。工部局期望通过法律规章与行政指令解决民众与企业之间的争端,但也存在着诸多无法可依、有法不依和执法不严等问题。企业秉持“成本—收益”理念应对民众的投诉和工部局的指令,能够获利时会积极治理煤烟污染,反之则会依托不同借口拖延甚至拒绝当局的指令或建议。总体来看,由于不同社会主体间的纠葛博弈以及一系列政治、经济、技术因素的限制,上述举措没有取得良好的效果,集中反映了近代中国城市环境治理所面临的困境。

The soot pollution in modern Shanghai was considered very significant and therefore given great attention and treatment by several social subjects in the Shanghai International Settlement.Based on the consideration of different interests,the governance measures of different social subjects were very different.There were residents who could not stand soot pollution and complain about the illegal enterprises,and those who supported or accepted the soot pollution.Simultaneously,they were generally forced to suffer the harm and inconvenience triggered by soot pollution.The Shanghai Municipal Council(SMC)expected to solve the disputes between the residents and enterprises by adopting the appropriate laws and regulations,and attempted to cooperate with enterprises to solve the problem of soot pollution.However,there were many problems that could not be observed,and the laws were not examined and law enforcement is not strict.Enterprises adhered to the concept of“cost-benefit”when dealing with the complaints of resident and the instructions of SMC.When profits could be made,soot pollution would be actively controlled.On the contrary,enterprises would delay or even reject the instructions or suggestions of the authorities with other justifications.On the whole,due to the entanglement between different social subjects and a series of political,economic and technical factors,the above measures did not achieve good results,which reflected the difficulties faced by urban environmental governance in modern China.