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    發表日期:2019年01月08日

    以法律為保障 扎實推進凈土保衛戰

    來源:中國環境報  201914

    孫寧

     

    201911日,《土壤污染防治法》正式實施,為我國土壤污染防治工作提供了法治保障,為打贏凈土保衛戰提供了強有力的法律支撐。

    《土壤污染防治法》中明確提出,土壤污染防治作為重大環境保護和民生工程,已經納入國家環境治理體系。扎實推進凈土保衛戰,是民心所愿、民心所向,必須堅定信心,在習近平生態文明思想的指導下,在國家污染防治攻堅戰的戰略部署下,不忘初心,持續發力,久久為功。

    精準聚焦,科學穩步推進土壤污染防治

    我國土壤污染防治起步較晚,土壤環境管理基礎較差,土壤污染防治技術還有待提高。在這種情況下,更應抓住主要矛盾和矛盾的主要方面,堅持夯實基礎、制度先行、重點突破、示范帶動、全面推進的策略,科學穩步推進各項工作。《土壤污染防治法》聚焦我國土壤污染防治重點工作,主要表現在以下幾方面。

    聚焦建立我國土壤環境質量和風險調查的制度體系。明確我國土壤環境質量十年一普查、重點區域重點監測、建立國家—省—市—縣四級土壤環境質量監測網絡的總體任務,特別是近期大力實施的農用地土壤環境質量調查和重點行業企業用地調查的“兩查”任務,其目的就是要充分掌握我國土壤環境污染的家底,明確不同風險等級和區域,為精確發力解決突出問題創造條件。

    聚焦推進在產企業源頭防控各項任務的落實。《土壤污染防治法》在《工礦企業土壤環境管理辦法》規定的8項在產企業土壤環境管理制度基礎上,進一步強調了6項制度,包括建立在產企業年度申報制度、土壤污染隱患排查制度、在產企業自行監測制度、企業拆除污染防治制度、土壤污染調查制度和企業退出土壤與地下水修復制度等,并在罰則部分就在產企業未遵守和落實相關制度的情況提出了相應的行政處罰規定和法律責任。這些內容是土壤污染源頭防控原則的重要體現。在產企業作為法律的責任主體,應切實認識土壤污染源頭防控對企業發展的重要意義,樹立社會責任感,不要存在走一步看一步的僥幸心理。地方環境管理部門也應鼓勵一些條件較好的企業先行先試,逐步帶動區域內企業全面遵守。

    聚焦落實污染地塊的3個名錄制度和多部門聯動的準入制度。根據《土壤污染防治法》,我國建立疑似污染地塊名單制度、污染地塊名錄制度、污染地塊風險管控與治理修復目錄制度,以及多部門聯動管理的、以保障土壤質量可安全開發利用為目的的準入聯動制度。這4個制度是污染地塊土壤環境管理的核心,是切實保障污染土壤全過程管理目標的根本制度。其中,污染地塊風險管控與治理修復目錄制度是在《土壤污染防治法》中首次提出的,體現了我國土壤環境管理特色。學習和落實《土壤污染防治法》,必須深入理解污染地塊的上述4項制度。

    聚焦落實污染農用地的分類管理制度。《土壤污染防治行動計劃》中明確了建立污染農用地(重點是耕地)的分類管理制度,經過一段時間的實踐,證明切實符合我國國情和實際。《土壤污染防治法》將這一制度提升到法律高度,并作為分類管理原則的重要體現。當前,農用地分類管理的思想在行業內基本達成共識,近期各地正在實施的農用地安全利用和修復項目,都能較好地體現分類管理思想。但從一定程度上說,農用地土壤污染防治比建設用地污染防治更難,其技術性、經濟性和操作性相較于污染地塊治理修復而言,有更高的約束要求,“一土一策”的差異性更加明顯。同時,部分地區在源頭尚未截斷的情況下實施農用地整治項目,效果是否能維持的風險問題不容忽視。農用地安全利用項目切忌盲目躍進,應通過國家示范項目的扎實推進,步步為營,及時總結經驗教訓,邊實踐、邊總結、邊推廣,才可以避免走彎路。

    協同共進,統籌推進土壤污染防治

    李干杰部長在最近召開的生態環境部黨組(擴大)會議上指出,準確把握對堅決打好污染防治攻堅戰的決策部署,要“協同共進”,要統籌兼顧,避免處置措施簡單粗暴;要協同推動經濟發展和環境保護。

    要做到統籌兼顧,必須認識到土壤污染問題的產生根源在于工業、農業、生活等經濟社會活動,認識到土壤污染防治任務的推進不能與大氣、水、固體廢物污染防治割裂開。《土壤污染防治法》提出“源頭防控”的原則,并在第三章專門闡述了“預防和保護”的各項任務和要求,就是將工業生產、農用生產、生活等活動,以及不同污染物防治作為一個整體,進行系統性設計。《土壤污染防治行動計劃實施情況評估考核規定(暫行)》已經發布,其中涉重金屬行業污染防控、工業固體廢物堆存場所環境整治、化肥農藥使用量零增長、廢棄農膜回收利用和非正規垃圾堆放點排查整治等5項內容是落實“源頭防控”任務的重要指標。這為抓住土壤污染防治重點工作提供了方向。

    要做到經濟和生態環境保護協同發展,必須認識到土壤污染防治能夠發揮推動經濟發展方式轉變、經濟結構優化、增長動力轉換的作用,在推動形成綠色發展方式和生活方式上能有更多作為,這可以從《土壤污染防治法》確定的制度體現出來。土壤污染強調企業的源頭防控,督促企業不斷提高工藝技術水平和防控水平,減少污染物的泄漏、排放等行為,減少固體廢物的產生并提高安全處置水平;提出農業生產活動中要大力減少農藥化肥的施用量,大力推廣清潔綠色配方;提出減少生活垃圾的產生量,提高生活垃圾全過程管理。

    2019年是新中國成立70周年,是決勝全面建成小康社會、打好污染防治攻堅戰的關鍵之年。2019年,在《土壤污染防治法》的保駕護航下,我國土壤污染防治工作將更加科學穩步推進。為進一步用好法律武器,打好凈土保衛戰,筆者提出如下幾點建議。

    一是大力宣傳和組織學習土壤污染防治法的思想方針、制度要求和法律責任等,通過多種形式的學習和宣傳,讓《土壤污染防治法》深入人心,尤其是企業業主、各級政府部門、土壤環境管理者、土壤修復產業從業者等。

    二是高質量完成農用地調查各項成果的集成和運用,大力推動重點行業企業用地調查任務完成,在質量審核和糾偏上下功夫,確保重點行業企業用地調查質量。

    三是在落實土壤環境管理各項制度上下功夫,部門聯動、履行職責,在土壤污染預防和治理上形成合力。通過信息依法公開,營造良好的重視土壤、保護土壤的社會氛圍。

    四是繼續給予國家和各省級土壤污染防治先行區建設以針對性指導,讓先行區能夠走得有特色、有成效、出經驗,按照邊研究、邊實踐、邊總結、邊推廣的組織實施模式,有序推進,以引領全國土壤污染防治的進程。

    五是在解決突出的土壤環境問題上發力,編制國家試點示范項目的組織管理要求和驗收評估要求,高標準、高起點,加快工程、技術、材料和裝備的模塊化、標準化,實現風險管控或治理修復的安全利用目標。

    六是充分發揮各聯盟、協會的作用,解決修復產業發展的共性問題,包括低價中標、計價標準缺失、工程技術經驗總結分析不夠、模式單一等問題。

     

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