所謂“清潔空氣微細顆粒(PM)汙染規則”的英文為:Clean Air Fine Particle Implementation Rule; Final Rule。
正巧,筆者有一位朋友在環境保護這一行裏做事。經朋友指點,查閱了一些資料,抖膽在這裏班門弄斧。
美國環境法規的製定到實施,有非常嚴格、有時近乎是極其煩人的過程。一般來講,一個法規成形,要經過如下步驟:
(1)問題的提出
(2)專家研究討論
(3)製定出初步標準
(4)向公眾(包括與之有關的企業)報告並舉行聽證
(5)訂出試行標準
(6)重複第4點
(7)製定最後標準和規則(Final Rule)
1987年,聯邦環保署開始啟動有關“清潔空氣微細顆粒(PM)汙染”方麵的研究。
1997年,訂出初步標準和規則(即所謂的“1997年PM10和PM2.5標準”)。
2007年,“清潔空氣微細顆粒(最終)規則”實施(即:“2006年標準”)。
美國環保署對有關標準的說明如下:
The Clean Air Act requires EPA to issue designations after the agency sets a new National Ambient Air Quality Standard (NAAQS) or revises an existing standard. EPA formally designates areas as “nonattainment” (not meeting the standard), “unclassifiable/attainment” (meeting the standard or expected to be meeting the standard despite a lack of monitoring data), or “unclassifiable” (insufficient data to classify).
Once nonattainment designations take effect, the state and local governments have three years to develop implementation plans outlining how areas will attain and maintain the standards by reducing air pollutant emissions contributing to fine particle concentrations.
未達到2006 年製定的PM2.5標準的地區(PM2.5 Nonattainment Areas),按照環保署的規定,有三年的時間來製定計劃,減少汙染,爭取達標。
下麵是最後法規(Clean Air Fine Particle Implementation Rule; Final Rule, April 25, 2007)頒布之時的兩段文字:
On July 18, 1997, we revised the NAAQS for particulate matter (PM) to add new standards for fine particles, using PM2.5 as the indicator. We established health-based (primary) annual and 24-hour standards for PM2.5 (62 FR 38652). The annual standard was set at a level of 15 micrograms per cubic meter, as determined by the 3-year average of annual mean PM2.5 concentrations. The 24-hour standard was set at a level of 65 micrograms per cubic meter, as determined by the 3-year average of the 98th percentile of 24-hour concentrations.
We subsequently completed in October 2006 another review of the NAAQS for PM. With regard to the primary standards, the 24-hour PM2.5 standard was strengthened to a level of 35 micrograms per cubic meter, based on the 3-year average of the 98th percentile of 24-hour concentrations, and the level of the annual standard remained unchanged.
可見,從上麵的步驟(1)到(7),美國走了30年。
對於一些具體標準,中國完全沒有必要重複美國的所有細節過程,可以采取“拿來主義”。事實上,中國也是這麽做的(如中國的飲用水法和汙染水法,基本上都是照抄美國的)。
但是,如何兼顧各方利益,保護環境和人民健康,同時避免付出過高的社會成本(比如說,造成不必要的失業率,等等),是需要認真評估、馬虎不得的。事實上,美國在這方麵也有各種利益方麵的博弈。一直到最近,因為成本過高,還有不少地區沒有嚴格執行美國聯邦的法規。