Progress, Challenge and Strategic Countermeasures of Chinese Pollution Risk Management of Water Environment
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摘要: 近年来我国水环境质量持续改善，但水环境风险及管控形势仍然严峻，化工厂爆炸和尾矿泄漏等突发性水环境事故频发，有毒有害污染物超标等累积性污染风险突出.该文着眼于水环境污染风险，对影响推进我国水环境风险管理的突出问题进行梳理，发现部分法律法规内容可操作性和防控力度有待完善提升、管理体系制度间衔接亟需加强、基础研究及支撑技术规范化不足、企业责任主体对风险防控的主动性不够、流域风险底数不清等问题，提出针对性的战略对策建议，包括加强顶层设计、统筹管理体系和制度的3个衔接、加强环境基准标准/风险评估/监测/应急处置4个方面的科学研究、构建以环境责任险和损害评估为核心的主动防控风险倒逼机制、开展重点水域风险普查摸清底数，提出水环境风险管理战略路线思路，强调环境风险防控关口前移、与现有环境管理体系相结合，统筹推进水环境风险管理.Abstract: In recent years, China's water environment quality has continued to improve, but water environment risks and management and control situation are still severe. Sudden water environment accidents such as chemical plant explosions and tailings leakage occur frequently, and cumulative pollution risks such as toxic and harmful pollutants exceed the standard. This article focuses on the risks of water environmental pollution, and sorts out the outstanding issues that affect the promotion of pollution risk management of water environment. It should be pointed out that the operability and prevention and control of some laws and regulations need to be improved, the connection between management systems and institutions needs to be strengthened, basic research and supporting technical standardization are insufficient, enterprises are not sufficiently proactive in risk prevention and control, and the base of river basin risks is unclear, etc. Accordingly targeted strategic countermeasures are proposed, including strengthening the top-level design and coordinating the three linkages of management systems and systems, strengthening scientific research in four aspects including environmental criteria standards/risk assessment/monitoring/emergency water treatment, establishing an active prevention and control mechanism of risk with environmental liability insurance and damage assessment as the core, conducting risk surveys in key water areas to find out the bottom line. The proposed strategic route of pollution risk management of water environment highlights the advancement of environmental risk prevention and control measures and the integration of existing environmental management systems, and the overall promotion of risk management of water environment.
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Key words:
- water environment /
- pollution /
- risk assessment /
- risk management /
- management and control strategy
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图 1 我国水环境风险管理的战略框架
Figure 1. The strategic framework of Chinese pollution risk management of water environment
表 1 我国突发环境风险防控相关法规政策依据
Table 1. China′s relevant policies and regulations for the prevention and control of sudden environmental risks
发布部门 发布时间 政策法规 全国人民代表大会常务委员会 2017年6月27日 《中华人民共和国水污染防治法》 2014年4月24日 《中华人民共和国环境保护法》 2007年8月30日 《中华人民共和国突发事件应对法》 国务院 2015年4月16日 《水污染防治行动计划》(国发〔2015〕17号) 2014年12月29日 《国家突发环境事件应急预案(新修订)》(国办函〔2014〕119号) 2011年10月17日 《国务院关于加强环境保护重点工作的意见》(国发〔2011〕35号) 原环境保护部 2015年4月16日 《突发环境事件应急管理办法》(环境保护部令第34号) 2015年1月8日 《企业事业单位突发环境事件应急预案备案管理办法(试行)》(环发〔2015〕4号) 2010年12月27日 《全国环保部门环境应急能力建设标准》(环发〔2010〕146号) 2010年9月28日 《突发环境事件应急预案管理暂行办法》(环发〔2010〕113号) 
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表 2 我国累积风险防控相关法规政策依据(水环境)
Table 2. China′s relevant laws and policies for cumulative risk prevention and control (water environment)
法规政策 条款 内容 《中华人民共和国水污染防治法》 第三十二条 国务院环境保护主管部门应当会同国务院卫生主管部门，根据对公众健康和生态环境的危害及影响程度，公布有毒有害水污染物名录，实行风险管理. 对排污口和周边环境进行监测，评估环境风险，排查环境安全隐患，并公开有毒有害水污染物信息，采取有效措施防范环境风险 第四十五条 排放工业废水的企业应当采取有效措施，收集和处理产生的全部废水，防止污染环境. 含有有毒有害水污染物的工业废水应当分类收集和处理，不得稀释排放 第六十二条 船舶及有关作业单位从事有污染风险的作业活动，应当按照有关法律法规和标准，采取有效措施，防止造成水污染 第六十九条 对饮用水水源保护区、地下水型饮用水源的补给区及供水单位周边区域的环境状况和污染风险进行调查评估，筛查可能存在的污染风险因素，并采取相应的风险防范措施 《水污染防治行动计划》 第十二条 开展有机物和重金属等水环境基准、水污染对人体健康影响、新型污染物风险评价、水环境损害评估、高品质再生水补充饮用水水源等研究 第十九条 提升饮用水水源水质全指标监测、水生生物监测、地下水环境监测、化学物质监测及环境风险防控技术支撑能力 第二十二条 严格环境风险控制，防范环境风险，定期评估沿江河湖库工业企业、工业集聚区环境和健康风险，落实防控措施 第二十三条 以改善水质、防范环境风险为目标，将污染物排放种类、浓度、总量、排放去向等纳入许可证管理范围 第二十五条 环境容量较小、生态环境脆弱、环境风险高的地区，应执行水污染物特别排放限值
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