Eco-Environmental Risk Management

Presentation on theme: "Eco-Environmental Risk Management"— Presentation transcript:

1 Eco-Environmental Risk Management
生态环境风险管理研究 Eco-Environmental Risk Management 毕军 南京大学环境学院 Jun Bi, School of the Environment, Nanjing University 乔治·格林 国际可持续发展研究院 George Greene, International Institute for Sustainable Development 国合会2015年年会，11月9-11日 北京 CCICED 2015 AGM, November 9-11, Beijing

2 Contents 环境风险现状与趋势 Current Status and Future Prospects of Environmental Risk 1 环境风险管理体系现状与不足 Gaps in Current Environmental Risk Management System 2 主要政策建议 Major Policy Recommendations 3

3 Environmental Risk Chain 环境风险全过程链
环境风险链 Environmental Risk Chain Social needs 社会需求 Environmental risk sources 环境风险源 Environmental media diffusion 环境介质扩散 Exposure of receptors 受体暴露 Consequence Of Damage 损害后果 social economic activities 社会经济活动 Failure of primary control mechanism 初级控制机制失效 Failure of secondary control mechanism 次级控制机制失效 Exposure response relationship (Vulnerability) 暴露反应关系(易损性) Environmental Risk Chain 环境风险全过程链

4 长期、累积性排放（或长期处于某一浓度水平）
环境风险类型 Environmental Risk Categories 急性后果 Acute consequences 慢性后果 Chronic consequences 长期、累积性排放（或长期处于某一浓度水平） Long-term cumulative discharge (or in a pollution level for a long time) Sudden discharge 突发性排放 重金属长期排放（如血铅事件）Long-term heavy metal discharge (e.g., elevated blood lead events) 污染场地 Contaminated sites 氮磷营养物质长期排放（蓝藻爆发）Long-term discharge of nitrogen, phosphorus nutrients (blue algal bloom event) PM2.5、臭氧等大气污染 Air pollution (PM2.5, ozone) 污染场地、矿区 Contaminated sites and mines 污染沉积环境 Contaminated sediments 新化学品、兴污染物、核废料 New chemicals, emerging contaminants, nuclear waste 区域开发 Land development 突发性排放事故造成的污染土地与沉积环境等（成为新的源，实际可归为第2、3类） Contaminated soils or sediments attributable to sudden environmental accidents（New environmental risk sources，can be classified to Categories 2&3） Category 1: Sudden Accident Risk 类别 1: 突发事故型环境风险 三废处理设施，危险化学品生产、存储、运输的火灾、爆炸、泄露 Fire, explosion, and leakage of hazardous chemical production, storage, and transportation, and wastes treatment facilities Category 3: Long-term Chronic Risk 类别 3: 长期慢性环境风险 Category 2: Cumulative Threshold Event Risk 类别 2: 累积到一定程度以突发事件爆发的风险 Three Categories of Environmental Risks 三种环境风险类型

5 Distribution of Accidental Pollution Incidents
环境风险现状 — 突发环境污染事件 Current Environmental Risk Levels — Pollution Incidents 事故数 Incident Number Environmental Pollution Incidents in China ( ) 频次呈现显著下降趋势 Frequency of pollution incidents shows a decreasing trend 存在空间差异性 Has spatial differentiations China Environment Statistical Yearbook ( ) Distribution of Accidental Pollution Incidents

6 环境风险现状 — 长期慢性风险 Current Environmental Risk Levels — Long-term Chronic Risk 土壤污染风险 Soil Pollution Risk 大部分矿区致癌风险值高于1×10-5 Most of the mining areas have the carcinogenic risk levels higher than 1×10-5 ——based on the data collected from literatures for 62 mining areas in 19 provinces in China PM2.5污染长期健康风险 Long-term Health Risk of PM2.5 PM2.5: 过早死亡风险概率约为10-3 PM2.5: premature death risk approximate 10-3 ——based on Global burden of disease (GBD) study

7 环境风险现状 — 长期慢性风险 Current Environmental Risk Levels — Long-term Chronic Risk 水污染风险 Water Pollution Risk 淮河流域重污染地区和消化道肿瘤高发区的分布高度一致 Consistency between heavily polluted waters and high gastrointestinal cancer rates in the Huaihe River Basin 气候变化引发的环境风险 Environmental risks due to climate change 如气候变化带来的大气污染健康风险和生物多样性损失等 Including health risks of complex air pollution and biodiversity losses, secondary environmental pollution accidents due to climate change-related natural disasters 新化学物质与新兴污染物 New Chemicals and Emerging Pollutants 如纳米材料、有机氟化物、环境内分泌干扰物、抗生素 e.g., nanomaterial pollution, fluorinated organic compounds, environmental endocrine disruptors, and antibiotics, etc. 区域开发生态风险 Ecological Risks of Regional Development 如一带一路基础设施建设 e.g., infrastructure constructions for One Belt and One Road Strategy 辐射源与核废料风险 Radiation Sources and Nuclear Waste Risk 随着中国核能的广泛应用，核废料处理处置过程中的环境风险将会越来越凸显 With more use of nuclear power in China, the environmental risks of nuclear waste disposal will become a prominent issue

8 Current Environmental Risk Levels — Public Demands
环境风险现状 — 公众需求 Current Environmental Risk Levels — Public Demands 人均收入 Income Level 可接受风险水平 Acceptable Risk Levels Environmental Petition Letters (million) 环境诉求来信数量（百万件） 教育水平 Education Level 可接受风险水平 Acceptable Risk Levels 全国环境诉求来信统计( ) National Environmental Complaints Letters ( ) 可接受风险水平与国民收入、教育水平之间的关系 Relationship between Acceptable Risk and Levels of Income and Education

9 总体环境风险水平 Overall Environmental Risk Level - Preliminary Analysis

10 Environmental Risk Prospects
环境风险趋势 Environmental Risk Prospects 公众可接受环境风险水平 Public environmental risk acceptance level 我国环境风险水平现状 Current environmental risk level 情景一：事件驱动型的环境管理模式 Scenario 1: accident or event-driven environmental management mode 时间 Time 环境风险等级 Environmental Risk Levels 情景二：构建环境风险管理体系情景 Scenario 2: scenario of establishing risk-based environmental management system 情景三：考虑风险交流的可接受风险水平 Scenario 3: risk acceptance level with consideration of risk communication and engagement 不考虑风险交流的可接受环境风险水平趋势 Prospect of risk acceptance level without consideration of risk communication and engagement 极高 Very High 高 High 中 Medium 低 Low 极低 Very Low 2010 2015 2020 2025 2030 2040 2050

11 近中期主要环境风险的初步筛选 Preliminary Scan of Environmental Risks in the Short and Medium Term Future
2015 2020 2030 突发事故型环境风险Sudden Pollution Accident Risk 累积到一定程度以突发事件爆发的环境风险 Cumulative Threshold Event Risk 化学品(生产、存储、运输和使用) Chemical risk (production, storage, transportation, and utilization) 因违法行为形成的环境风险 Risk due to law violation 富营养化(蓝藻爆发) Eutrophication risk (algae bloom) 重金属污染风险(水、土壤) Heavy metal risks (water, soil) 污染场地(重金属、有机污染物) Contaminated sites (heavy metals, organic pollutants) 气候变化带来的自然灾害引发的次生突发环境风险 Accident risks due to climate change-related natural disasters

12 近中期主要环境风险的初步筛选 Preliminary Scan of Environmental Risks in the Short and Medium Term Future
2015 2020 2030 长期慢性环境风险 Long-term Chronic Risk PM2.5健康风险 Health risk of PM2.5 O3健康风险 Health risk of O3 短寿命气候污染物健康风险(如黑炭) Health risk of SLCPs, e.g., BC 污染场地(重金属、POPs) Contaminated sites (heavy metals, POPs) 新兴污染物(水、土壤) New chemical and emerging pollutants (water, soil) 生态风险(区域开发如一带一路) Ecological risk (regional development e.g., Belt and Road) 辐射源与核废料环境风险 Radiation source and nuclear waste risk 气候变化带来的生态风险与环境健康风险 Health and ecological risk of climate change

13 Contents 环境风险现状与趋势 Current Status and Future Prospects of Environmental Risk 1 环境风险管理体系现状与不足 Gaps in Current Environmental Risk Management System 2 主要政策建议 Major Policy Recommendations 3

14 中国环境风险管理体系现状 Current Status of Environmental Risk Management System in China 文件 Document 年份 Year 内容 Content 《国民经济和社会发展第十二个五年规划纲要》 Twelfth Five-year Plan for National Economic and Social Development 2011 首次纳入了“防范环境风险”的内容 Environmental risk prevention was firstly introduced into the Five-year Plan 《国务院关于加强环境保护重点工作的意见》 Opinions on Strengthening Major Environmental Protection Tasks by the State Council 提出了“建设更加高效的环境风险管理和应急救援体系”等要求 Proposed to establish more efficient environmental risk management and emergency response systems 《中华人民共和国国家安全法》National Security Law of China 2015 将环境安全问题纳入了国家安全体系 Incorporated environmental safety into the national security system 2015年中共中央、国务院印发了《生态文明体制改革总体方案》，旨在加快建立系统完整的生态文明制度体系，加快推进生态文明建设。 In 2015, the Central Committee of the Communist Party of China and the State Council issued the Integrated Reform Plan for Promoting Ecological Civilization System to accelerate the establishment of a complete ecological civilization system and to promote the construction of ecological civilization.

15 中国环境风险管理体系现状 Current Status of Environmental Risk Management System in China 环境风险逐渐被纳入国家层面的决策体系中，但仍处于起步阶段。目前仍处于事件驱动型的环境风险管理模式阶段。 Environmental risk issues have been gradually incorporated into national decision- making system but is still at an early stage. It is still event-driven in many cases. 2005年松花江水污染事件促使了中国突发污染事件环境风险防范与应急能力得到了较大提升。 The Songhua River water pollution accident in 2005 led to improvements in accidental pollution prevention and emergency response capacity. 《重金属污染综合防治”十二五”规划》在一系列重金属污染事件爆发后制定出台。 After a series of heavy metal pollution incidents, China issued the 12th Five-year Plan of Comprehensive Heavy Metal Pollution Prevention. 2013年灰霾污染催生了《大气污染防治行动计划》。 Haze pollution in 2013 spurred the enactment of Air Pollution Prevention and Control Action Plan.

16 International Experiences
主要国际经验 International Experiences 环境风险管理的基础 Foundations of Environmental Risk Management The “White-Black Book” Unfinished Business (USEPA, 1987) The “Orange Book” Understanding Risk: Informing Decisions in a Democratic Society (NRC, 1996) The “Silver Book” Science and Decisions: Advancing Risk Assessment (NRC, 2009) The “Red Book” Risk Assessment in the Federal Government: Managing the Process (NRC, 1983) The “Blue Book” Science and Judgment in Risk Assessment (NRC, 1994)

17 International Experiences
主要国际经验 International Experiences 欧美发达国家以及部分亚洲国家，已经建立了相对完善的、高效的环境风险管理体系 Countries in Europe and North America and parts of Asia have established relatively robust and efficient environmental risk management systems : 宏观层面的环境风险治理体系 —— 例如：美国的清洁空气法/环保署/食品药品管理局/职业安全与健康管理局；欧盟的REACH和Soveso指令；新加坡的风险办公室 Environmental risk governance systems at macro levels – US Clean Air Act/EPA/FDA/OSHA; EU REACH and Soveso directives; Singapore Risk Office 针对不同行业、不同风险类型的环境风险管理目标体系 Differentiated environmental risk management goals for different types of risks and for different industries 比较完善的环境风险管理支撑体系 —— 金融保障、经济工具、工业责任体系、风险信息披露 Relatively complete environmental risk enabling measures – financial security, economic instruments, industrial responsibility, risk disclosure 高效的环境风险交流和公众有序参与模式 Effective environmental risk communication and public engagement systems

18 中国环境风险管理体系的差距 The gaps of Environmental Risk Management System in China 基于环境风险的治理体系仍不完善 The environmental risk governance system is incomplete 未形成系统的环境风险管理目标和战略 Systematic environmental risk management goals and a national strategy and system for managing environmental risks has not been established 环境风险管理能力的支撑体系不完善 The set of enabling measures for environmental risk management is incomplete 环境信息披露、环境风险交流与公众参与体系仍然薄弱 Environmental information disclosure, environmental risk communication, and public engagement systems are weak

19 Contents 环境风险现状与趋势 Current Status and Future Prospects of Environmental Risk 1 环境风险管理体系现状与不足 Gaps in Current Environmental Risk Management System 2 主要政策建议 Major Policy Recommendations 3

20 Framework of Policy Recommendations
政策建议框架 Framework of Policy Recommendations 突发事故型环境风险 Sudden Accident Pollution Risk 累积到一定程度以突发事件爆发的风险 Cumulative Threshold Event Risk 长期慢性环境风险Long-term Chronic Environmental Risk 防范与削减 To Prevent and Reduce 环境风险管理体系 Environmental Risk Management System 目标与战略 Goals and Strategy 支撑措施 Enabling Measures 环境风险治理Environmental Risk Governance 风险交流和公众参与 Risk Communication and Engagement

21 政策建议1：环境风险治理 Policy Recommendation 1: ENVIRONMENTAL RISK GOVERNANCE Policy Recommendation 1: Establish a risk-based environmental governance system 政策建议1： 构建基于风险的环境治理体系

22 政策建议1：环境风险治理 1.1 建立高层次的、常设的国家环境风险委员会
Policy Recommendation 1: ENVIRONMENTAL RISK GOVERNANCE 1.1 建立高层次的、常设的国家环境风险委员会 Establish a High-level, Permanent National Environmental Risk Board 负责环境风险评估与排序，环境风险管理目标与战略的制定 To assess, prioritize environmental risks, set environmental risk management goals and strategy 协调不同环境风险之间，以及经济发展目标与环境风险管理目标之间的权衡 To resolve tradeoffs among multiple risks, and between economic development goals and environmental risk goals 协调与监督不同部门之间涉及环境风险管理领域的事务 To coordinate and oversee environmental risk management issues across relevant government ministries

23 政策建议1：环境风险治理 1.2 建立基于环境风险的决策体系
Policy Recommendation 1: ENVIRONMENTAL RISK GOVERNANCE 1.2 建立基于环境风险的决策体系 Establish an environmental risk-based decision making system 在“十三五” 规划中融入环境风险管理思想，在以环境质量改善为目标的同时，逐步构建以风险控制为目标导向的环境管理体系 Incorporate environmental risk management in 13th Five-Year Plan for environmental quality improvement, start to establish a proactive environmental risk management system for risk prevention and reduction 建立国家重大宏观战略的环境风险评估与预防制度 Establish an environmental risk assessment and prevention system for the macro-strategies 将环境风险评估与管理纳入到各级政府的决策过程，包括政策与规划的制定和实施（包括“多规合一”）、环境标准的制定等 Incorporate environmental risk requirements into government decisions at all levels of sector and regional policies, plans (including Integrated Multiple-in-One Spatial Plans), and environmental standards

24 成立以环境要素为主体的管理机构(大气、水、土壤污染防治司等)，同时考虑相互间的协调
政策建议1：环境风险治理 Policy Recommendation 1: ENVIRONMENTAL RISK GOVERNANCE 1.3 基于环境风险的机构调整 Rearrange environmental risk-based institutions 成立以环境要素为主体的管理机构(大气、水、土壤污染防治司等)，同时考虑相互间的协调 Establish MEP departments for air, water, soil – with coordination 强调从环保部到地方环保系统的纵向链条关系 Strengthen vertical connections of MEP to provincial and local Environmental Protection Bureaus 将危化品管理纳入现有环境应急管理体系中 Incorporate chemical management into the current environmental emergency response system

25 政策建议2：目标与战略 Policy Recommendation 2: GOALS AND STRATEGY Policy Recommendation 2: Establish environmental risk management goals and strategy 政策建议2：制定中国环境风险管理目标和战略

26 政策建议2：目标与战略 Policy Recommendation 2: GOALS AND STRATEGY 2.1 制定中国环境风险管理目标 Set environmental risk management targets 结合环境风险评估、成本效益、公众风险感知，设立国家层面综合的环境风险防范与削减化目标 Set comprehensive national environmental risk prevention and reduction targets, incorporating risk assessment results, costs and benefits, and public perception 允许省/区域根据自身实际情况，设置不同的实现环境风险管理目标的阶段与线路 Require provinces and regions to prepare risk roadmaps setting out pace and path to meet the targets

27 政策建议2：目标与战略 Policy Recommendation 2: GOALS AND STRATEGY 2.2 制定综合性的全国环境风险管理战略 Establish a comprehensive national environmental risk management strategy 开展全国以及区域性环境风险评估与排序工作，建立国家和区域环境风险管理优先级清单 Conduct national risk assessment and ranking exercise to set national and regional priorities 构建与应用基于环境风险全过程链的环境风险管理体系 Develop and apply an environmental risk chain-based management approach

28 环境风险管理战略初步线路图 Preliminary Roadmap for Environmental Risk Management Strategy 管理体系 Management System 风险水平 Risk Levels 对环境风险体系评估并调整以适应新形势 Evaluate and adjust to fit evolving conditions 总体环境风险处于较低水平并与公众可接受风险水平基本相吻合 Overall environmental risk controlled at low levels, and aligned with public risk perceptions 实现以风险控制为目标导向环境管理模式的历史性转变 Environmental risk management system transformed to proactive mode + risk management system 一些风险将会得到控制，例如湖泊富营养化风险、水和土壤中重金属环境风险等。总体环境风险下降，生态环境与公众环境健康状况得到改善 A number of environmental risks controlled e.g. eutrophication of lakes, heavy metals in soil/water. Overall environmental risk reduced --- improved ecological and public health 环境风险防控理念被纳入到国家宏观层面的战略决策 Environmental risk prevention and reduction is incorporated into national macro strategies and decision making 一些优先管理的风险处于下降过程，如PM2.5污染风险 PM2.5 and a number of other environmental risks in progress to be reduced 2020

29 政策建议3：支撑体系 Policy Recommendation 3: ENABLING MEASURES Policy Recommendation 3: Establish enabling measures for environmental risk management 政策建议3：完善中国环境风险管理的支撑体系

30 Policy Recommendation 3: ENABLING MEASURES 3.1 完善环境风险管理的立法与司法
政策建议3：支撑体系 Policy Recommendation 3: ENABLING MEASURES 3.1 完善环境风险管理的立法与司法 Complete legislation and a judiciary for environmental risk management 制定出台环境责任法、土壤环境保护法以及污染场地管理配套法律法规 Put in place an environmental liability law and soil environmental protection law. Develop supporting regulations for contaminated site management 完善化学品或有毒有害物质管理专项法律，实施化学品全生命周期风险管理，并强化生产过程中优控污染物的全面监管 Complete the special law for chemical and hazardous material management, implement life-cycle risk management for chemicals, and strengthen comprehensive supervision of priority pollutants 推进环境司法 Promote an environmental judiciary

31 政策建议3：支撑体系 Policy Recommendation 3: ENABLING MEASURES 3.2 进行环境风险信息整合 Enable environmental risk information integration 系统整合分散在不同部门的环境风险信息，并纳入全国统一的生态环境信息平台 Integrate environmental risk information into unified national information platform for eco-environmental monitoring

32 政策建议3：支撑体系 Policy Recommendation 3: ENABLING MEASURES 3.3 充分利用金融和经济手段预防环境风险 Apply financial and economic instruments to prevent and reduce environmental risks 实施强制的工业企业污染责任保险 Make liability insurance for enterprises mandatory 高风险行业环境风险保证金制度 Create an environmental risk deposit system for high-risk industries 污染场地修复/环境健康赔偿基金制度 Put in place special funds for contaminated site remediation and environmental health compensation

33 政策建议3：支撑体系 Policy Recommendation 3: ENABLING MEASURES 3.4 加强环境风险应对能力建设 Strengthen environmental risk response capacity 提高各级、各类环境应急预案的有效性 Improve effectiveness of all levels, all kinds of environmental emergency response plans 建立健全权责明晰、信息共享的协调联动机制，加强安监、交通、环保、公安等部门之间的协调联动 Establish joint emergency response mechanisms with clear authority, responsibility, and information sharing Involve government departments for safety supervision, transportation, environmental protection, and public security

34 政策建议3：支撑体系 Policy Recommendation 3: ENABLING MEASURES 3.5 构建工业企业环境风险责任体系 Establish a system for industry and enterprise responsibility 采取措施激励国有企业和其他企业开展环境风险管理实践 Drive and support industry sectors and state and other enterprises to adopt environmental risk management practices 要求企业建立“环境健康与安全（EHS）”管理体系 Require enterprises to establish environment, health, and safety (EHS) management systems 强制要求将环境风险信息披露纳入上市企业财务报告中 Put in place mandatory risk disclosure in financial reporting requirements for listed companies

35 政策建议4： 建立环境风险交流和公众参与体系
政策建议4：风险交流与公众参与 Policy Recommendation 4: COMMUNICATION AND ENGAGEMENT Policy Recommendation 4: Establish an environmental risk communication and engagement system 政策建议4： 建立环境风险交流和公众参与体系

36 Establish an active information disclosure and communication system
政策建议4：风险交流与公众参与 Policy Recommendation 4: COMMUNICATION AND ENGAGEMENT 4.1 建立积极的信息披露与交流体系 Establish an active information disclosure and communication system 构建涵盖多利益主体、透明的环境风险交流体系 Develop a transparent environmental risk communication system involving multiple stakeholders 形成获取公众对环境风险的认知、以及向公众传输正确环境风险知识的机制 Establish mechanisms for risk knowledge transfer to and from the public

37 Establish an efficient environmental risk engagement program
政策建议4：风险交流与公众参与 Policy Recommendation 4: COMMUNICATION AND ENGAGEMENT 4.2 建立高效的环境风险公众参与模式 Establish an efficient environmental risk engagement program 构建包含受影响社区对话与反馈在内的社区与公众参与的模式 Develop and implement community and public engagement programs for dialogue and feedback from affected communities 推进公众参与政策、空间规划与项目的战略环境评价与环境影响环评 Promote public participation in strategic and environmental impact assessments of policies, spatial planning, and projects

38 Thank You ! 中外组长 Co-chairs: 支持专家 Support Team： 毕 军 (Jun BI)
程红光 (Hongguang CHENG) George Greene 包存宽 (Cunkuan BAO) 曾维华 (Weihua ZENG) 顾问专家 Consultants: 虢清伟 (Qingwei GUO) 曲久辉 (Jiuhui QU) 钱 瑜 (Yu QIAN) 王开宇 (Kaiyu WANG) 曲常胜 (Changsheng QU) 王金南 (Jinnan WANG) 张 伟 (Wei ZHANG) Stephen Andrews 马宗伟 (Zongwei MA) 刘苗苗 (Miaomiao LIU) 核心专家 Key Experts: 张世秋 (Shiqiu ZHANG) 协调员 Coordinators: 张金良 (Jinliang ZHANG) 於 方 (Fang YU) 王佩珅 (Peishen WANG) Haakon Vennemo Jonathan Wiener Ortwin Renn