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1、中国环境法制建设对环保投资和环保产业的影响中英文对照Influence of environmental legal system construction in China for investment in environmental protection and environmental protection industry in Chinese and English. 内容提要: 本文回顾了我国30年来环境与资源法制建设的历程，从通过法律确立市场信心和直接引导资金进入环保领域等两个方面分析了环境与资源法制建设对环保投资和环保产业发展的影响，并指出了当前我国环境与资源保护法律在引导
2、环保投资、促进环保产业发展方面的不足及其根源。在此基础上，从立法目标、立法框架、法律制度和法律实施机制等四个方面提出了今后我国环保立法的目标与方向。Abstract: This paper reviews the history of legal system construction of Chinas environment and resources for 30 years, from the establishment of market confidence through legal and direct funds to enter the field of environme
3、ntal protection, two aspects of the effect of legal system construction of environment and resources to environmental protection investment and the development of environmental protection industry, and points out that the current Chinas environment and resources protection law under the guidance of
4、environmental protection investment, promote the development of environmental protection industry and its deficiency causes. On this basis, puts forward the goal and direction of Chinas environmental protection legislation in the future from the four aspects of the legislative goal, the legislative
5、framework, legal system and law enforcement mechanism.从各国环境保护的实际历程来看，同一般的社会投资和产业发展不同，环保投资和环保产业是随环境与资源保护法律及相关政策措施的制定和实施所“引导”或者“转化”出来的。探讨环境与资源保护法律同环保投资和环保产业的关系，对于进一步加强我国生态环保工作，实现国民经济又好又快发展，有重大的理论意义和现实意义。From the practical experience of the environmental protection point of view, different from the gen
6、eral social investment and industrial development, investment in environmental protection and environmental protection industry is the formulation and implementation of the environment and resources protection law and related policies and measures of the guide or transformation . Discussion on envir
7、onmental and resources protection legal relationship with the investment in environmental protection and environmental protection industry, to further strengthen our environmental protection work, to achieve sound and fast economic development, have great theory meaning and realistic meaning.一、中国环境法
8、制建设基本情况The basic situation of China, the construction of environmental legal system经过30年的发展，我国的环境法治工作取得了重大的进展。我们以科学发展观为指导，坚持以人为本，将资源节约与环境保护确立为基本国策，努力建设资源节约和环境友好型社会，实现全面协调可持续发展。环境与资源保护法律从无到有，从少到多，逐步建立起了一个由宪法中的环境与资源保护条款、法律、行政法规、部门规章、地方性法规和规章、国际公约和条约以及配套的标准等所构成的比较完整的框架体系。到目前为止，全国人大常委会已经制定了25部有关环境与资源保护的
9、法律。国务院及其有关部门制定的环境与资源保护的行政法规和规章已达上百件。各地人大和政府制定的地方性环境与资源法规和地方政府规章达1500多件。我国批准和签署的多边国际环境条约48项。After 30 years of development, environmental law in China has made great progress. We are guided by the scientific outlook on development, adhere to the people-oriented, resource conservation and environmental
10、 protection will be established as the basic national policy, strive to build a resource-saving and environment-friendly society, realize the comprehensive coordinated sustainable development. Environmental law and resource protection from scratch, from less to more, and gradually establish a framew
11、ork of relatively complete form a resource conservation and environmental protection clause in the constitution, laws, administrative regulations, departmental regulations, local laws and regulations, international conventions and treaties as well as supporting the standard. So far, the NPC Standing
12、 Committee have formulated relevant environmental and resources protection of the 25 laws. The administrative regulations and rules of the protection of the environment and resources to develop the State Council and the relevant departments have reached hundreds. Throughout the development of Nation
13、al Peoples Congress and the government of the local environmental and resources laws and regulations and local government regulations more than 1500 pieces. China approved and signed 48 multilateral international environmental treaties.从环境与资源保护的整个过程来看，从规划、项目决策到污染物最终处置的整个过程来看，在各个环节都形成了一些重要法律制度。如在规划和计
14、划环节，形成了规划的环境影响评价制度和环境保护规划、计划制度；在建设项目环节，形成了建设项目的环境影响评价制度和“三同时”1制度；在生产、经营和污染治理环节，形成了排污申报登记制度、排污总量控制制度、排污许可证制度、排污收费制度、限期治理制度等。近年来，在清洁生产和循环经济理念的影响下，环境与资源保护立法有了新的变化，调整生产技术和生产结构，从源头防治污染成为立法的重要方向。随着清洁生产促进法等法律的颁布实施，有关清洁生产审计、环境管理认证、环境标志等制度也逐步得到实施。随着可再生能源法和新的节能法的颁布实施，鼓励清洁能源利用和节约能源的一系列新制度得到实施。From the point of
15、 view of the whole process of environmental and resource protection, the whole process of final disposal from planning, project decision-making to pollutants, in all aspects of the formation of a number of important legal system. Such as in the planning and scheduling, formed the system of environme
16、ntal impact assessment and environmental protection planning, plan system planning; construction projects in the link, formed a construction project environmental impact assessment system and the three simultaneous 1 system; in the production, management and pollution control link, formed the declar
17、ation and registration system, the total amount of emissions control system, sewage discharge permit system, charging system, deadline governance system of sewage. In recent years, the impact of cleaner production and circular economy, environment and resources protection legislation had the new cha
18、nge, adjust the production technology and production structure, has become an important direction from the source of pollution prevention and control legislation. Along with the Clean Production Promotion Law and other laws promulgated and implemented, the cleaner production audit, environmental man
19、agement certification, environmental labeling system also gradually implemented. With the renewable energy law and the new energy saving law was promulgated, to encourage the use of clean energy and energy conservation of a series of new system implementation.二、中国环境与资源保护法律对环保投资和环保产业发展的影响Two, China E
20、nvironmental and resources protection laws on environmental protection investment and the development of environmental protection industry在近三十年的环境与资源法制建设过程中，各项环境与资源保护法从两个方面引导环保投资和环保产业发展。一方面是通过法律确立市场信心，引导形成环保市场需求；另一方面是直接引导公共财政资金和社会资金进入环保领域。In the construction of legal system on environment and resour
21、ces in recent thirty years, protect environment and resources of the law to guide investment in environmental protection and environmental protection industry development from two aspects. One is to establish the confidence of the market by law, to guide the formation of environmental protection mar
22、ket demand; on the other hand is the direct guidance of public finance funds and social funds to enter the field of environmental protection.在直接引导政府和企业投资方面，环境与资源保护法也在发挥着重要作用。2000年修订的大气污染防治法，曾对修订草案的预期效果及需要的投资作了一些初步的估算。从当时修订内容来看，如果在法律公布后，执法到位，各项法律规定切实得到实施，预计将取得以下四个方面的成效：主要污染物排放总量在得到控制的基础上，开始逐年减少；重点城市大
23、气质量明显改善；机动车排气污染得到控制土工格栅；城市扬尘得到有效控制。实施有关法律规定预计所需投资是： 1.总量控制方面：控制酸雨和二氧化硫污染，实现到2010年使“两控区”3内二氧化硫排放量控制在1000万吨左右的目标，约需治理投资1800亿元，平均每年投入180亿元； 2.重点城市污染控制方面：从当时34个重点城市（扣除达标的13个城市）来看，可分为三类情况：第一类是沿海开放城市。如福州、汕头、苏州、湛江等，这些城市经济基础较好，大气质量也较好，实现大气质量达标不需要更多投入，平均约6亿8亿元；第二类是特大城市，如北京、上海等，虽然经济条件好，但治理大气污染任务较重，实现达标需要较大投入，
24、平均在250亿300亿元左右；第三类是其他城市，如郑州、杭州、青岛、桂林等，实现达标平均需投入15亿20亿元。综上所述，这34个城市若实现达标，约需投入1200亿1500亿元。3.机动车污染控制方面土工布价格，初步研究表明，如果使机动车污染控制达到国家新规定的排放标准，所需的控制费用约占国内生产总值的0.3% 0.7%。4.扬尘污染控制方面，建筑施工扬尘污染的控制远比工业污染治理简单易行，只要严格执行法规制度，加强管理，不需要多少投入，就能够取得成效，根据北京市实例测算，防止施工扬尘费用仅占整个工程概算的0.1% 0.3%。虽然法律实施后的情况与原来预计不尽一致，但有关法律规定会引导大量公共财
25、政和企业资金投资环保投资是确凿无疑的。近年来修订的固体废物污染环境防治法和水污染防治法虽然未作类似的估算，但其对环保投资和环保产业玻纤土工格栅的实际影响作用是相近的。In the direct guidance of government and business investment, environment and resources protection law also play an important role. The 2000 amendments to the air pollution prevention law , has the expected effect on
26、the revised draft and the need of investment made some preliminary estimation. From the time the revision content, if the law after the announcement, law enforcement in place, the provisions of the law to be implemented, is expected to achieve the following four aspects: the effect of the total emis
27、sions of major pollutants in control, began to decrease year by year; high quality key city obviously; motor vehicle exhaust pollution control dust obtained city; effective control. The implementation of the relevant provisions of the law is the investment required: 1 total control: control of acid
28、rain and sulfur dioxide pollution, by 2010 the two control zones within the 3 control of sulfur dioxide emissions in 10000000 tons of goals, about control investment 180000000000 yuan, the average annual investment of 18000000000 yuan; 2 key city pollution control: from 34 was a key city ( 13 city d
29、eduction standard ), it can be divided into three categories : the first category is open coastal city. Such as Fuzhou, Shantou, Suzhou, Zhanjiang City, the economic foundation is good, air quality is better, the atmospheric quality standard does not require more input, an average of about 600000000
30、 8 billion yuan; second is a large city, such as Beijing, Shanghai, although the economic conditions are good, but the air pollution of heavy task, achieve standard the need to invest more, on average 25000000000 300 billion yuan; the third category is other city, such as Zhengzhou, Hangzhou, Qingda
31、o, Guilin, achieve standard average need to throw 1500000000 20 billion yuan. To sum up, the 34 city to achieve compliance, about 120000000000 1500 billion yuan. 3 motor vehicle pollution control, preliminary studies show that, if the motor vehicle pollution control to achieve the new provisions of
32、the national emission standards, control costs account for about 0.3% of gross domestic product 0.7%. 4 dust pollution control, control of construction dust pollution than industrial pollution control is simple, as long as strict enforcement of laws and regulations, strengthen the management, not th
33、e number of inputs, can achieve results, according to the Beijing city example calculation, prevent construction dust cost only accounted for the entire project budgetary estimate of 0.1% 0.3%. Although the law after the implementation of the situation and expected not consistent, but the relevant l
34、egal provisions will lead a large public finance and capital investment in environmental protection investment is without a doubt. In recent years, the revised solid waste pollution prevention and control law and water pollution prevention law although no similar estimates, but its actual effect on
35、investment in environmental protection and environmental protection industry is similar.20012006年底，六年时间内，全国环境污染治理累计投资为10965.3亿元。其中城市环境基础设施建设投资6203亿元；工业污染源治理投资1834.5亿元；新建项目“三同时”环保投资2927.8亿元。2001 - by the end of 2006, six years, the national environmental pollution control investment 1096530000000 yua
36、n. The city s environmental infrastructure construction investment 620300000000 yuan; industrial pollution control investment 183450000000 yuan; the new project three simultaneous environmental investment 292780000000 yuan.三、中国环境与资源保护法律在引导环保投资、促进环保产业发展方面的不足Three, Chinas environment and resources pro
37、tection law in guiding the investment in environmental protection, promote the development of environmental protection industry problems当前，由于我国环境与资源保护法律本身的缺陷和法律实施的缺失，法律在引导环保投资和环保产业方面的潜力和作用还没有有效地发挥出来，尚不能为实现环境保护规划目标，落实环境保护规划的投资及其他各项保障措施复合土工膜，提供强有力的法律保障。其根源主要是：At present, due to protect environment and
38、 resources of our country law implementation flaws and the lack of laws, and the potential role in guiding the investment in environmental protection and environmental protection industry laws have not effectively play out, not for the implementation of environmental protection planning objectives,
39、the implementation of environmental protection planning, investment and other security measures, to provide a powerful legal guarantee the. The main reason is that:1.一些重要的环境领域尚处在无法可依的状况，不能确保这些领域获得市场注意和社会投资。这结领域包括循环经济发展、有毒化学品污染防治、环境污染损害赔偿、土壤污染防治、湿地生态保护、自然保护区的维护管理、生物安全等玻纤土工格栅。同时，法律规定大多比较原则，可操作性不强，阻碍了法
40、律的有效实施，制约了法律对环保投资和环保产业引导效应的发挥。1 some important environmental field is still in the lawless condition, cannot ensure market attention and social investment in these areas. The areas include the development of circular economy, toxic chemicals pollution prevention and control, compensation for damage
41、from environmental pollution, soil pollution prevention and control, ecological protection, nature conservation area maintenance management, biological safety. At the same time, the legal provisions are mostly comparison principle, operability is not strong, hindered the effective implementation of
42、the law, the legal effect of restricting investment in environmental protection and environmental protection industry guide.2.市场调控手段缺乏，缺乏激励环保投资和环保产业发展的经济激励机制。在这方面真正实施的只有排污收费、污水处理收费、电厂脱硫加价等几项制度和政策，并且存在制度设计上的问题。其他起抑制环境污染的环境税费和鼓励环境保护的环境补偿制度基本是空白。由于缺乏有效的经济激励手段和合理的制度设计，相应就不能有效激励企业进行环保投资，发展环保产业。The lack o
43、f regulation means 2 of the market, the lack of incentive investment in environmental protection and environmental protection industry economic incentive mechanism. The real implementation in this regard only the sewage charges, sewage treatment fee, power plant desulfurization increases several sys
44、tem and policy, and the existing problems of the design of the system. Other curb environmental pollution environmental tax and encouraging environmental protection environmental compensation system is basically blank. Due to the lack of economic incentives for effective and reasonable system design
45、, the corresponding can not effectively stimulate enterprises to environmental protection investment, the development of environmental protection industry.3.公众参与缺乏有效的立法保障，相应的社会调控机制尚未有效发挥作用，社会自觉的环保需求不足。在发达国家，以自愿协议、环境标志、信息公开和公众参与为基础的社会调控制度，已经在法律上获得有效保障，成为政府、市场之外保护环境的重要社会调控机制，成为环保需求和投资的重要引导力量。3 public
46、participation is lack of effective legislation, the social control mechanism corresponding not play an effective role, lack of social consciousness of environmental protection requirements. In developed countries, the voluntary agreement, environmental labeling, information disclosure and public par
47、ticipation as the basis of social regulation and control system, has been effectively guaranteed in the legal mechanism of social control, important as government, market, protect environment, become the important guidance to the demand of environmental protection and investment.4.法律得不到有效实施的问题相当突出，法
48、律规范的环保需求不能转化为“现实”的市场需求，不能带动相应的环保投资和环保产业发展。环境保护行政管理体制不合理，中央部门缺乏对地方部门的领导和制约能力；行政执法力量特别是基层的行政执法力量薄弱，执法不力，许多违法现象不能及时发现和制止；社会的守法意识还不够高，一些政府领导干部法制意识淡薄，干扰正常行政执法工作，为某些违法行为袒护；司法部门办理环境与资源保护案件的能力不足，办案不及时，处罚力度不够。The 4 law is not effective implementation problem is quite prominent, legal norms of the demand of e
49、nvironmental protection can not be translated into real market demand, can not drive the corresponding environmental protection investment and the development of environmental protection industry. Administrative system of environment protection is not reasonable, the central departments lack of local leaders and control ability; administrative enforcement of administrative law enforcement power base is weak, weak law enforcement, many illegal p
