改革开放以来我国大气污染防治政策的演变及其优化建议

发布时间：2018-11-25 08:09

【摘要】：近年来,大气污染日益充斥于人们的视野中。其主要形式是酸雨、灰霾和光化学烟雾污染等,来源主要是燃煤、机动车和工业排放。大气污染导致各种灾害性天气,使空气变得浑浊、能见度降低、空气质量变差,严重影响人们的生产、生活以及身体健康,同时对国家以及世界的可持续发展构成严重威胁。近年来,我国大部分地区不同程度遭受到大气污染侵袭,向我国大气污染防治提出挑战。改革开放是我国经济建设各项事业的分水岭,改革开放以来随着工业经济的迅猛发展,能源需求的扩大等,大气污染物的排放始终居高不下,大气污染的防治工作始终成效不佳,对我国的大气污染防治政策的优化迫在眉睫。本文从公共政策的视角出发,以区域公共品理论、政策变迁理论为理论基础,采用文献研究法、比较研究法的研究方法,结合我国大气污染政策变迁动力因素,以政策的防治重点和大气污染物的阶段特征为划分依据,将改革开放以来的防治政策的演变划分为三个阶段分别进行政策的梳理,这三个阶段为以1979年《环境保护法》颁布为标志的煤烟型污染控制为主的法制管理阶段,以1998年《酸雨控制区和二氧化硫污染控制区划分方案》的颁布为标志的复合型污染初显探索区域联防联控阶段和以2013年《大气污染防治行动计划》颁布为标志的复合型-区域联防联控综合防治阶段。在通过梳理以往政策的基础上,发现政策中存在的缺陷,并探讨存在缺陷的原因:在法律法规方面,存在法律法规更新滞后,执法操作性能欠佳,责任主体界定模糊;在配套政策方面,存在能源优化有待政策倾斜,环境经济政策手法单一,市场保障机制亟需建立;在区域协作政策方面,存在联防联控立法欠缺,区域督查机制失当,长效合作机制缺乏。针对以上政策缺陷,结合我国现阶段大气污染特征以及国内外的一些优秀经验,提出针对我国大气污染防治政策的优化建议。首先是健全法律法规体系,主要包括以人为本修订法律体系,各方协同增强执法操作,权责分明明确责任主体;其次是完善相关配套设施,主要包括加大能源相关政策倾斜,创新环境经济政策手段,推进市场保障机制建立;第三,优化区域协作治理模式,主要包括强化深化区域立法,有效贯彻区域督查,推进区域长效合作;第四,加强政策之间协同性,主要包括政策主体协同,政策客体协同,政策工具协同。希望通过综合、全面、有效的政策优化建议,实现大气污染防治政策的成效。
[Abstract]:In recent years, air pollution is increasingly flooded into the eyes of people. Its main forms are acid rain, haze and photochemical smog pollution, mainly from coal, motor vehicles and industrial emissions. Air pollution causes a variety of disastrous weather, making the air become turbid, visibility reduced, air quality become worse, seriously affect people's production, life and health, and at the same time pose a serious threat to the sustainable development of the country and the world. In recent years, most areas in China have been attacked by air pollution to varying degrees, which challenges the prevention and control of air pollution in China. The reform and opening up is a watershed in the economic construction of our country. With the rapid development of industrial economy and the expansion of energy demand since the reform and opening up, the emission of atmospheric pollutants has always remained high. The prevention and control of air pollution has always been ineffective, so it is urgent to optimize the prevention and control policy of air pollution in China. From the perspective of public policy, based on the theory of regional public goods and the theory of policy change, this paper adopts the literature research method, the comparative research method and the dynamic factors of air pollution policy change in China. Based on the key points of the policy and the characteristics of the stage of the air pollutants, the evolution of the control policy since the reform and opening up is divided into three stages to sort out the policy respectively. These three stages are the legal management stage marked by the promulgation of the 1979 Environmental Protection Law, which is dominated by the control of coal smoke pollution. Study on the initial stage of Joint Control of Regional pollution based on the promulgation of the "Acid Rain Control area and sulfur dioxide pollution Control Zone" in 1998 and the promulgation of the 2013 "Action Plan for the Prevention and Control of Atmospheric pollution" Complex-regional joint prevention and control integrated prevention and control phase. On the basis of combing past policies, this paper finds out the defects in the policies and probes into the causes of the defects: in the aspect of laws and regulations, the update of laws and regulations lags behind, the performance of law enforcement is poor, and the definition of the subject of responsibility is vague; In the aspect of supporting policies, there are some problems, such as energy optimization needs to be preferred, environmental and economic policies are single, and the market security mechanism needs to be established. In the aspect of regional cooperation policy, there are lack of joint defense control legislation, regional supervision mechanism and long-term cooperation mechanism. In view of the above policy defects, combined with the characteristics of air pollution at present in China and some excellent experience at home and abroad, the paper puts forward some suggestions for optimizing the air pollution prevention policy in China. The first is to improve the system of laws and regulations, mainly including the people-oriented revision of the legal system, all parties to enhance the law enforcement operation, clearly defined responsibility of the main authority; The second is to improve the related facilities, mainly including increasing the energy related policy tilt, innovating the environmental economic policy means, and promoting the establishment of the market security mechanism; Third, optimize the regional cooperative governance model, mainly including strengthening and deepening regional legislation, effectively implementing regional supervision, and promoting long-term regional cooperation; Fourth, strengthen the synergy between policies, including the coordination of policy subject, policy object and policy tools. It is hoped that through comprehensive, comprehensive and effective policy optimization suggestions, the air pollution prevention policy will be effective.
【学位授予单位】：湖南师范大学
【学位级别】：硕士
【学位授予年份】：2016
【分类号】：X51

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