Overview and consideration of laws and regulations and technical specifications for soil pollution prevention and control at home and abroad
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摘要:
完善的法律法规体系与相得益彰的技术规范是土壤质量保护与污染防治工作的基础与保障。借鉴国外先进的土壤污染防治技术与管理经验，对我国土壤污染风险防控和修复治理工作具有重要的指导意义。全面系统地阐述了发达国家与我国土壤污染防治法律法规及技术规范的特点，并总结国外先进经验，分析我国土壤污染防治存在的问题与挑战，对我国土壤污染防治工作提出对策与建议。我国虽然形成了以风险管控为核心，以“预防为主，防治结合”为原则，涵盖污染预防、调查监测、风险评估与管控、修复治理、开发再利用等多方面的法律法规体系，但各阶段的法律细节有待完善，且缺乏针对不同类型污染场地的专门立法，应加快健全我国土壤污染防治法律法规体系。此外，我国现行的土壤污染防治技术规范部分滞后或空白，已不能满足当前土壤环境管治的现实需要，需不断扩充和趋严。
Abstract:A sound legal and regulatory system and its supporting technical norms are the basis and guarantee of soil quality protection and pollution prevention. Drawing on advanced soil pollution prevention technologies and management experience has important guiding significance for soil pollution prevention and control work in China. The characteristics of laws, regulations and technical norms of soil pollution prevention and control in developed countries and China were expounded comprehensively and systematically. The relevant foreign advanced experience was summarized. The problems and challenges of soil pollution prevention and control in China were analyzed, and some countermeasures and suggestions for soil pollution prevention and control in China were put forward. Although China had formed a relatively complete legal and regulatory system with soil risk management and control as the core and with the principle of "prevention first and combining with treatment", covering soil pollution prevention, investigation and monitoring, risk assessment and control, remediation and treatment, development and reuse, etc., the legal details at each stage still needed to be improved, and there is a lack of special legislation for different types of contaminated sites. Therefore, the improvement of relevant laws and regulations on soil pollution prevention and control should be speeded up. In addition, some of the current technical standards for soil pollution prevention and control in China were blank or lagging behind, which could no longer meet the practical needs of soil environmental management, and need to be expanded and tightened continuously.
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表 1 国外土壤环境保护或土壤污染防治法律法规的特点
Table 1. Characteristics of foreign laws and regulations on soil environmental protection or soil pollution prevention
国家 土壤保护相关法律法规特点 数据来源 美国 先后颁布了《超级基金法》《超级基金修正和重新授权法案》以及《棕地法案》，是最早针对污染场地在环境监测、调查评估、风险管控、修复治理、权利追责等方面进行详尽立法的国家，已经建立了从环境监测、风险评价到场地修复的标准化质量管理体系 文献[25] 英国 尚无专门的土壤污染防治立法。1990年颁布的《环境保护法案》第2A部分是污染场地管理的核心法规，为土壤污染鉴定及恢复整治提供了依据，主要遵循可持续发展、污染者付费、污染预防原则，形成了基于风险管控的土壤污染防治体系 文献[6,15] 日本 对农村和城市进行差别化立法，形成了以《农用地土壤污染防治法》和《土壤污染对策法》为主体，以《土壤污染对策法实施细则》《与重金属有关的土壤污染调查对策方针》和《关于土壤地下水污染调查对策方针》为补充的法律法规体系 文献[26] 韩国 《土壤环境保护法》不但制定了强制实施土壤污染调查、修复和整治责任承担等制度，还建立了土壤污染监测网。该法案的颁布标志着韩国综合性土壤污染防治法律框架的建立 文献[18] 德国 遵循污染者付费原则，采用以整治为主的单一立法模式，注重土壤功能的修复，构建了以欧盟相关土壤保护指令和政策为指导，以《联邦土壤保护法》为核心，以《联邦土壤保护与污染场地条例》《联邦污染控制法》《肥料法》和《土壤评价法》等联邦法律为配套，以地方各州土壤保护法为补充的土壤环境保护立法体系 文献[20] 丹麦 严格执行“谁污染，谁付费”原则，建立了适用于所有类型和不同时期土壤污染的法律制度 文献[19] 荷兰 2013年颁布的《土壤保护法》整合了此前制定的各种零散的土壤保护法案、决议和判决等，将土壤污染风险划分为对人类健康的、对生态系统的和对整体自然环境的3类，尽可能囊括所有情形。该法案遵循污染者付费原则，并引入“多功能”修复原则，使修复后的土地可适用于多种用途，建立以保护和改善土壤环境、管控污染土壤环境风险、整治和修复受污染土壤为一体的，以“预防为主，兼顾治理”的法律法规体系 文献[21] 俄罗斯 尚无专门的土壤污染防治立法。2001年俄罗斯联邦颁布的《土地整理法》首次明确规定必须对受污染土地进行治理 文献[27] 加拿大 加拿大联邦层面没有针对污染土壤的专门立法，一般由省级政府制定，但不同省份的法规不尽相同，与美国《超级基金法》相似，遵循污染者付费原则 文献[25] 澳大利亚 主要分联邦和州两级，在州一级的立法相对比较完善，通过行政执法、法院司法予以实施 文献[28] 
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表 2 近10年我国土壤污染防治相关政策文件
Table 2. Policy documents on soil pollution prevention and control in recent 10 years
时间 文件 发布单位 内容 2012-11-27 《关于保障工业企业场地再开发利用环境安全的通知》 原环境保护部、工业和信息化部、原国土资源部、住房和城乡建设部 明确保障工业企业场地再开发利用环境安全的9点要求 2013-01-23 《关于印发近期土壤环境保护和综合治理工作安排的通知》 国务院办公厅 明确土壤环境保护和综合治理的目标和主要任务 2014-03-03 《关于推进城区老工业区搬迁改造的指导意见》 国务院办公厅 明确城区老工业区搬迁改造任务及保障措施，提出城区老工业区企业就地改造、异地迁建或依法关停前需科学编制实施方案，并开展场地环境调查和风险评估，对确认已污染的建筑物应治理后方能利用 2014-05-14 《关于加强工业企业关停、搬迁及原址场地再开发利用过程中污染防治工作的通知》 原环境保护部 对工业企业场地再开发利用过程中污染防治工作提出了6点要求，强调保障环境安全 2016-11-24 《国务院关于印发“十三五”生态环境保护规划的通知》 国务院 提出分类防治土壤环境污染，以农用地和重点行业企业用地为重点，开展土壤污染状况详查，加强建设用地环境风险管控，开展土壤污染治理与修复 2016-12-31 《污染地块土壤环境管理办法(试行)》 原环境保护部 提出对疑似污染地块开展土壤环境初步调查，以及对污染地块开展土壤环境详细调查、风险评估、风险管控、治理与修复及其效果评估等活动，明确各方责任 2017-09-25 《农用地土壤环境管理办法（试行）》 原环境保护部和原农业部 提出对农用地开展土壤污染预防、土壤污染状况调查、环境监测、环境质量类别划分、分类管理等活动 2018-05-03 《工矿用地土壤环境管理办法（试行）》 生态环境部 提出对工矿用地土壤和地下水开展环境现状调查、环境影响评价、污染防治设施的建设和运行管理、污染隐患排查、环境监测和风险评估、污染应急、风险管控和治理与修复等活动 2018-06-16 《关于全面加强生态环境保护 坚决打好污染防治攻坚战的意见》 国务院 提出强化土壤污染管控和修复，扎实推进净土保卫战 2021-01-29 《建设用地土壤污染责任人认定暂行办法》和《农用地土壤污染责任人认定暂行办法》 生态环境部、农业农村部、自然资源部、国家林业和草原局 规范了建设用地和农用地土壤污染责任人认定 2021-06-30 《建设用地土壤污染风险管控和修复从业单位和个人执业情况信用记录管理办法（试行）》 生态环境部 规范和加强建设用地土壤污染风险管控，修复从业单位和个人执业情况的信用记录管理 2021-12-30 《关于印发“十四五”土壤、地下水和农村生态环境保护规划的通知》 生态环境部、国家发展和改革委员会、财政部、自然资源部、住房和城乡建设部、水利部、农业农村部 提出加强耕地污染源头控制，实施耕地分类管理，严格建设用地准入管理和防范工矿企业新增土壤污染，提高受污染耕地和重点建设用地的安全利用率
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