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中文题名:

 我国新污染物环境风险管控制度的立法研究    

姓名:

 刘沐晗    

保密级别:

 公开    

论文语种:

 chi    

学科代码:

 030107    

学科专业:

 经济法学    

学生类型:

 硕士    

学位:

 法学硕士    

学位类型:

 学术学位    

学位年度:

 2024    

校区:

 北京校区培养    

学院:

 法学院    

研究方向:

 环境法学    

第一导师姓名:

 严厚福    

第一导师单位:

 法学院    

提交日期:

 2024-06-19    

答辩日期:

 2024-05-10    

外文题名:

 LEGISLATION RESEARCH ON THE ENVIRONMENTAL RISK CONTROL FOR EMERGING POLLUTANTS IN CHINA    

中文关键词:

 新污染物 ; 有毒有害化学物质 ; 环境风险 ; 风险预防 ; 生态环境法典    

外文关键词:

 Emerging Pollutants ; Toxic and Hazardous Chemicals ; Environmental Risks ; Risk Precaution ; Environment Code    

中文摘要:

新污染物环境风险管控制度是我国正在构建的一项重要的环境法律制度。我国的常规污染物治理已经取得了显著成效,但对于新兴的新污染物问题,我国尚处于监管起步阶段。当前,新污染物在我国已具有现实性危害,但治理工作还存在立法缺位、信息不足等问题,现行化学品安全管理法与污染控制法无法有效应对新污染物风险,对公众健康和生态环境安全构成了较大威胁。目前,各地均已出台新污染物的地方治理方案,正在编纂的生态环境法典也将在“污染控制编”设专章规制新污染物环境风险。系列政策的支持,加之现有制度的立法与实践经验,为我国构建新污染物环境风险管控制度提供了理论支持。
新污染物环境风险管控面临着多重的现实矛盾:化学品对社会发展的福利性与危害性的矛盾;研发、使用化学品的技术自由与环境保护需求的矛盾;新污染物不确定性对基于确定性的传统法模式的挑战;公众化学品认知与技术性规范内专家意见长期存在的分歧;新污染物管控、发展需求的国别差异。新污染物环境风险管控制度需要通过立法体现自由、正义、秩序、效率等法的基本价值。以可持续发展为标准,新污染物环境风险管控制度应以保障所有公众的健康不受新污染物危害为底线,致力于预防新污染物对生态环境造成的风险,在此前提下,追求高质量的绿色发展模式,形成合理的权利义务体系。因此,新污染物环境风险管控的目的是,预防有毒有害物质等新污染物对公众健康和生态环境造成的不合理风险,实现可持续发展。
新污染物风险具有科学不确定性,可能对公众健康和生态环境造成严重的不可逆损害,因而新污染物问题满足风险预防原则的构成要件,属于典型的“风险”问题。应当将风险预防原则作为新污染物环境风险管控的基本原则开展制度构建。此外,全过程管理原则、分类管理原则和公众参与原则均应成为新污染物环境风险管控的原则,为具体制度提供依据与指导。
欧盟、美国等地的新污染物治理开展较早,积累了一定的立法与实践经验。欧盟法规以确保对人类健康和环境的高度保护水准为旨,将新污染物环境风险管控流程分为“注册-优先排序-风险评估-授权与限制”,设置大量附录进行详尽规范。美国将化学物质分为现有化学物质、新化学物质,在兼顾技术发展同时,确保化学物质不会对健康或环境造成不合理的损害风险,新污染物环境风险管控流程主要分为“优先级确定-风险评估-风险管控”三步骤,同时设专章对特别物质或场所进行规制。在新污染物管控流程、规范范围、信息提交责任、立法体例和章节结构等方面,比较法经验均可为我国所借鉴。
未来的新污染物环境风险管控制度应覆盖现有化学物质与新化学物质中的所有新污染物,遵循“风险筛查-风险评估-风险管控”的基本逻辑,最终形成环境法典、法律法规和目录相结合,兼备稳定性与动态变化的规范体系。新污染物环境风险管控的基本思路是,对于现有化学物质,首先需要依据登记信息,从化学物质中筛选出需要优先评估的化学物质,再对高优先级化学物质进行危害评估、暴露评估,而后对其中被确认为具有不合理风险的新污染物制定并实施“一品一策”风险管控措施,纳入清单进行公示。新化学物质不需要进行风险筛查,在登记后直接进入风险评估与风险管控流程。其中,风险筛查和风险评估仅关注客观的风险因素,并且应当依照风险预防原则对风险难以确定的物质做出严格处理。风险管控措施需要考虑替代物及管控措施的成本和效益,使之符合我国的可持续发展需求。

外文摘要:

The environmental risk control regulation for emerging pollutants is an important environmental legislation being constructed in China at present. While China has achieved significant results in the control of conventional pollutants in the past, for emerging pollutants, it is still in the initial stage of regulation and management. Emerging pollutants have caused factual damage in China, but there are still issues of legislative lack and insufficient information in the governance, and the current Chemical Safety Management Law and Pollution Control Law being unable to effectively address the risks of it, posing a significant threat to public health and ecological environment safety. Now local government have tied ti formulate and conduct their own regulation, and the currently being compiled Environmental Code will also set up a special chapter in the Pollution Control Part to regulate the environmental risks of emerging pollutants. The support of a series of policies, combined with the institutional and practical experience of existing law, provides theoretical support for building the environmental risk control system for emerging pollutants in China.
The environmental risk control of emerging pollutants faces multiple contradictions: the contradiction between the welfare and harm of chemicals to social development; the contradiction between technological freedom in the research and  use of chemicals, and environmental protection needs; the scientific uncertainty of emerging pollutants poses a challenge to traditional law models based on certainty; the long-standing disagreement between public perception of chemicals and expert opinions under technical regulation; and national differences in emerging pollutant control and development needs. The risk control system needs to reflect the basic legal values of freedom, justice, order, efficiency through legislation. Based on sustainable development purpose, the environmental risk control system should take ensuring the health of all the public from being harmed by emerging pollutants as the bottom line, and prevent unreasonable risks to the ecological environment. Under this premise, it should pursue a high-quality green development model, and form a appropriate arrangement of rights and obligations. Therefore, the purpose of environmental risk control for emerging pollutants is to prevent unreasonable risks caused by toxic and hazardous substances and other emerging pollutants to public health and the ecological environment, and to achieve sustainable development.
The risk of emerging pollutants has scientific uncertainty and may cause serious irreversible damage, thus the problem of emerging pollutants meets the elements of precautionary principle and belongs to a typical "risk" problem. The precautionary principles should be taken as the basic principle for the system. Additionally, the principles of whole process management, classification management, and public participation should also become the principles of environmental risk control for emerging pollutants, providing basis and guidance for specific regulations.
The EU and the United States have carried out emerging pollutant control law for decades, and accumulated certain legislative and practical experience. The EU regulations aim to ensure a high level of protection for human health and the environment, dividing the environmental risk control process into "Registration, Priority, Evaluation, Authorization and Restriction", and setting up a large number of annexes for detailed regulation. The United States divides chemical substances into existing and new ones, ensuring that they do not pose unreasonable risks to health or the environment and take measures to protect technological development. The environmental risk control process is mainly divided into three steps "Prioritization, Risk Evaluation, Regulation". At the same time, special chapters are set up to regulate special substances or places. In terms of emerging pollutants control processes, regulatory scope, information submission responsibilities, legislative style and chapter structure, comparative law experience can be used as a reference for China.
The future environmental risk control law for emerging pollutants should cover all emerging pollutants in existing and new chemical substances, following the basic logic of "Risk Prioritization, Risk Evaluation, Risk Regulation", and ultimately forming a regulatory system that combines Environmental Code, laws and regulations, and catalogs, with both stability and dynamic changes. The basic idea of environmental risk control for emerging pollutants is that, for existing chemical substances, it is necessary to first screen out the chemical substances that need priority evaluation based on registration information; then conduct hazard and exposure assessments on high priority chemical substances; and then develop and implement "one substance, one policy" risk management measures for emerging pollutants that are confirmed to have unreasonable risks, and include them in the list for public disclosure. New chemical substances do not require risk screening and can directly enter the risk evaluation and management process after registration. Among them, risk prioritization and risk evaluation only focus on objective risk factors, and should put stricter measure to uncertain risk substances in accordance with the precautionary principle. Risk management should take the costs and benefits of substitutes and control measures into account, in order to meet the sustainable development needs of China.

参考文献总数:

 133    

作者简介:

 刘沐晗(1999-),女,福建南靖人,北京师范大学法学院经济法硕士研究生,研究方向为:环境法学。    

馆藏号:

 硕030107/24001    

开放日期:

 2025-06-21    

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