防治土壤污染 守護沃土良田

文/吳平

“日月麗乎天，百谷草木麗乎土”，土壤承載著人類與萬物的生存繁衍。然而長期以來，經濟社會快速發展，土壤污染卻一直困擾我國。土壤本身的特性決定了其污染易、修復難，投入大、見效慢。可以預見，土壤污染防控必然是我國政府向污染“宣戰”的重要一役，既是持久戰又是攻堅戰。

As the old saying goes that “the sun and the moon run in the sky and the plants grow in the soil”,it shows that soil carries the survival and reproduction of human beings and all things on earth.However,for a long time,with the rapid development of economy and society,the country is still haunted by soil pollution.Characteristics of the soil itself determine it easy to cause pollution and difficult to restore,which costs large input but is slow to take effect.It is foreseeable that the prevention and control of soil pollution will inevitably become an important campaign of the Chinese government to “declare war” against pollution.It will not only be a protracted war but also a tough fight.

對于嚴重污染的土壤修復進度緩慢

The process is slow to restore the heavily polluted soil

我國土壤環境狀況總體不容樂觀，耕地和工礦用地污染較為嚴重，污染物以重金屬等無機物為主。根據《全國土壤污染狀況調查公報》，從總體格局上看，全國土壤總超標率達16.1%；從污染物構成看，鎘、鎳、砷分別以7.0%、4.8%、2.7%的點位超標率成為最主要的污染物，滴滴涕、多環芳烴等污染物點位超標率也相對較高。隨著資源能源消耗和人為活動強度的持續增加，土壤環境保護面臨的壓力持續增加。

China’s soil environmental conditions in general are not optimistic,arable land and industrial and mining land are heavily polluted and the pollutants are mainly the heavy metals and other inorganic substances.According to theBulletin on National Soil Pollution Survey,it can be seen from the overall pattern that the total over-standard rate of soil in the country reached up to 16.1%.From the composition of pollutants,cadmium,nickel and arsenic became the major pollutants with the respective point over-standard rate of 7.0%,4.8% and 2.7%.In addition,the point over-standard rate of DDT,PAH and other pollutants were also relatively high.With the resources and energy consumption and the intensity of human activities continue to increase,soil environmental protection also faces the increasing pressure.

在土壤環境狀況不容樂觀的條件下，修復工作任重道遠。當前，土壤修復已得到各級政府的重視，在國務院頒布“土十條”的基礎上，福建、安徽等20個省區市已公布地方版“土十條”，在分解細化國家標準之外，突出地方土壤環境特色：如黑龍江、吉林將黑土地列為治理重點之一。然而，當前我國土壤修復能力仍然受到技術和資金的制約。技術方面，與大氣污染和水污染治理不同，土壤修復耗時長、耗力大，處理過程更復雜，此外，土壤類型多樣，受體（生物、水體、空氣、人體等）類型眾多，導致土壤修復技術也比較復雜。目前，我國不少土壤修復技術仍停留在實驗室水平，尚沒有形成行之有效的技術體系，關鍵設備仍須進口。資金方面，當前土壤修復資金主要依賴政府部門和土地開發商，而排污企業等造成土壤污染的主體由于產權不明、規模有限等原因難以提供足夠的資金，“誰污染，誰治理”的原則并未得到有效遵從，致使我國土壤修復能力難以快速提高，增量污染問題依然嚴峻，“毒地”現象屢見不鮮。

Under the circumstance that the soil environment conditions are not optimistic,there is a long way to go for soil restoration.At present,soil restoration has received attention from the governments at all levels.Based on the10-Chapter Soil Pollution Action Planissued by the State Council,the local10-Chapter Soil Pollution Action Planhas been published in 20 provinces,autonomous regions and municipalities such as Fujian,Anhui and so on,which highlighted the local characteristics of the soil environment in addition to decomposition and refining of the national standard.For example,Heilongjiang and Jilin list the black soil as one of the governance emphases.However,the current soil restoration capacity in China is still subject to technical and financial constraints.When it comes to technology,unlike governance of air pollution and water pol-lution,soil restoration is time-consuming and labor-intensive,and the process is more complicated.Plus the diverse soil types and numerous receptor (organism,water,air,human body,etc.) types,so the soil restoration technology is also complex.At present,many soil restoration technologies in China are still at the laboratory level and there is no effective technical system at present,as a result of which the key equipment still need to rely on imports.With regard to funds,the current soil restoration funds rely on government departments and land developers,but it is difficult for polluting enterprises and other subjects causing soil pollution to provide sufficient funds due to unclear property rights,limited scale and other reasons,and the principle of “whoever causes pollution is responsible for its treatment” is implemented with difficulty and is hard to be pushed forward,resulting in China’s soil restoration capacity is difficult to gain rapid increase,still grim incremental pollution and common phenomenon of “toxic soil”.

制度短板是重要的制約因素

System shortcomings restrict soil restoration

“看得見的污染，看不見的制度”。當前土壤污染防治除技術性障礙之外，還存在一些制度空白，這些空白成為提升土壤污染防治工作的瓶頸。只有彌補制度缺失，才能為治理開門引路、保駕護航。

“Pollution is visible while system is invisible”.At present,there are some gaps in the system in addition to technical difficulties for prevention and control of soil pollution,resulting in the bottleneck for enhancing prevention and control of soil pollution.Therefore,only by making up for the lack of system can we lead the way and escort for governance.

一是污染底數不清，現有數據較為粗糙。土壤污染的“家底”是所有防治工作的前提和基礎。我國尚未建立起按照污染程度進行分類的農用地清單和污染地塊清單，監管依據不足。盡管《全國土壤污染狀況調查公報》公布了一些土壤污染檢測數據，但是調查點位設置較為稀疏，數據難以準確代表土壤污染的分布和狀況，部分地區甚至缺乏監測點位和人員配置。因此，亟須以農用地和重點行業的企業用地為重心開展土壤污染狀況的詳細測查。

Firstly,pollution is incomputable and the existing data is not accurate.To have a clear understanding of soil pollution is the prerequisite and basis for all prevention and control.Since China has not yet established the farmland list and polluted land list to be classified by degree of pollution,supervision basis is insufficient.Bulletin on National Soil Pollution Surveyreleased some test data of soil pollution,but the survey point is set to be more sparse,making the data difficult to accurately reflect the distribution and status of soil pollution,and even lack monitoring points and staffing in some areas.Therefore,we are in the urgent need to carry out a detailed survey on soil pollution with the focus on farmland and land for enterprises in major industries.

二是制度體系尚待完善，法治保障仍須加強。當前，我國的土壤污染法律體系還未建立，相關規定分散于其他環境污染法律法規中，法律缺位致使法律責任、主體等方面的認定存在難度，從而加大了有關土壤污染違法案件的處理難度；此外，目前我國較少采用經濟手段，如引導市場行為的鼓勵政策。美國在土壤污染的管理方面，以《環境應對、賠償和責任綜合法》為基礎建立了超級基金場地管理制度，包括責任追究、修復響應和污染賠償，有力地震懾了污染行為人，反過來起到了污染防治的效果。由于監管未實現完全的有法可依，加上各地土壤環境監測、監督執法、風險預警體系建設嚴重滯后，難以對土壤環境實施有效監控。

Secondly,the system has yet to be improved and the law guarantee needs to be strengthened.At present,China’s soil pollution legal system has not yet been established,and relevant provisions are scattered in other environmental pollution laws and regulations.Legal system can prevent soil pollution violations,however,the current lack of legal absence makes it difficult for identifying legal responsibilities and subjects and so on,exacerbating the difficulty of dealing with cases in relation to soil pollution violations.At the same time,the law can also provide for the means of pollution control,and now less economic means is adopted in China,such as incentives to guide the market behavior.In the aspect of management of soil pollution,the United States has established a superfund site management system based onEnvironmental Response,Compensation and Responsibility Law,which includes accountability,restoration response and pollution compensation,serving as a strong deterrent to the polluters,which also becomes effective in pollution prevention and control in turn.In addition,due to legal basis is not fully realized,plus the seriously lagging soil environment monitoring,supervision and law enforcement and construction of risk early warning system in various places,it is difficult to exercise effective monitoring of soil environment within the area under administration.

三是標準規范精細度低，技術體系亟待完善。現行的土壤環境標準不健全，使得目前土壤環境污染評價與分區都缺乏適當的依據。目前執行的《土壤環境質量標準》（1995）粗略且針對性弱，雖然2014年環保部發布了建設用地土壤環境調查、監測、評估、修復系列標準作為補充，但總體上看還存在諸多問題。一是土壤標準制定過于要求統一，并未充分考慮我國土壤類型復雜的現實情況，沒有因地制宜；二是污染物項目較少，尤其是有機污染物種類偏少；三是重金屬污染物指標雖注重總量控制，但土壤污染主要是由有效態構成，總量控制情況不能準確地反映土壤受到的實際影響；四是現行標準的制定未充分考慮土壤對生物受體的毒性效應。

Thirdly,the standard specification is not refined and the technical sys-tem needs to be improved.The existing soil environmental standard is not sound,making the current soil environmental pollution assessment and zoning lack appropriate basis.The existingSoil Environment Quality Standard(1995) is rough and less pertinent.Although the Ministry of Environmental Protection issued a series of standards for soil environment survey,monitoring,evaluation and restoration in construction land as a supplement,there are still many problems on the whole.First,too much emphasis is placed on establishment of soil standard and the reality of complex soil types in China is not fully taken into account,which fails to achieve adjusting measures to local conditions.Second,there are less pollutant projects,especially there are less types of organic pollutants.Third,heavy metal pollutant indicators focus on the total quantity control,but the soil pollution is mainly composed of the effective state,so the total quantity control cannot accurately reflect the actual impact of the soil.Fourth,establishment of the existing standard does not fully consider the toxic effect of soil on the biological receptors.

政策與市場雙重助力

Soil restoration requires the double assistance of policy and market

防治土壤污染，完善制度先行。首先，結合“土十條”，加快土壤污染防治立法。堅持“保護優先、預防為主、防治結合”的方針和“分類、分區、分目標管理”的原則，建立符合中國國情的土壤污染防治體系。在防治體系中重點要設立公平合理的責任認定原則，并根據不同的法律責任主體規定相應的法律責任，誰污染，誰負責。其次，盡快修訂《土壤環境質量標準》等相關標準。再次，創新監管模式，提升監管能力。

Firstly,system improvement shall go ahead for prevention and control of soil pollution.First of all,we must combine with the implementation of the10-Chapter Soil Pollution Action Planto speed up legislation for prevention and control of soil pollution.We shall adhere to the policy of“protection first,prevention orientation,prevention and treatment combination” and the principle of “classification,zoning,sub-target management” to establish the system for prevention and control of soil pollution that is in line with China’s national conditions.In the prevention and control system,we shall set up the principle of fair and reasonable responsibility,and stipulate the corresponding legal responsibility according to the different legal liability subjects,and practice the principle of “whoever causes the pollution shoulders the responsibility”.Second,we shall amendSoil Environment Quality Standardand other standards as soon as possible.Third,we shall bring new ideas to supervision mode to enhance supervision capacity.

制定市場規則，刺激修復活力。土壤修復要善于利用經濟手段，重點在于制定市場規則、引導資源配置。在投融資、稅收、補貼等方面，扶持跨區域、區域內環保設施統一規劃、統一建設、統一運營，實現環保基礎設施一體化管理。通過政府和社會資本合作（PPP）模式，加大政府購買服務力度，帶動更多社會資本參與污染協同治理。發揮政策性和開發性金融機構的引導作用，為跨區域、多介質協同治理的重大污染防治項目提供支持。

Secondly,we shall make market rules to stimulate the restoration vitality.Soil restoration also requires good at utilizing of economic means,focusing on the development of market rules to guide allocation of resources.When it comes to investment and financing,taxation and subsidies,we shall support the unified planning,construction and operation for environmental protection facilities in the region and achieve integrated management of environmental protection infrastructure.We shall increase government’s procurement of services through the government and social capital cooperation (PPP) mode to mobilize more social capital to participate in synergistic governance of the pollution.In addition,we shall play the guiding role of policy and development financial institutions to provide support for major pollution prevention and control projects for cross-regional and multi-media co-governance.

呼喚可實踐、符合現狀需求的新技術。我國污染土壤修復技術的研發應該為解決農田、工業場地、礦區及周邊土壤污染以及生態敏感的濕地土壤污染等問題提供技術支持，這就要求研發出能應用于不同土壤類型與條件、不同土地利用方式和不同污染類型與程度的土壤修復技術。

Thirdly,we shall call for the practical new technology that is in line with the current needs.China’s research and development of polluted soil restoration technology shall provide technical support for solving problems such as soil pollution in farmland,soil pollution in industrial sites,soil pollution in mining areas and surroundings and soil pollution in ecologically sensitive wetland,which requires research and development to apply to different soil types and conditions,different soil utilization modes and the soil restoration technology with different pollution types and degrees.