中国化学品环境管理的挑战与机遇.pdf

2总编辑 Chief Editor伊莎贝尔 . 希尔顿 Isabel Hilton责任编辑 Editors马天杰 Ma Tianjie克里斯多夫 . 戴维 Christopher Davy翻译 Translator罗迪 . 弗拉格 Roddy Flagg设计 Design深目及工作室 Shenmuji Studio封面图片摄影 Front cover image邱波 / 绿色和平 Qiu Bo/Greenpeace3“隐形污染”：中国环境治理下一站？ 马天杰，冯灏 中国在全球化学品管理新形势中下所面临的挑战与方向 刘建国 “去毒”之路：纺织行业在中国的绿色挑战 武毅秀 Chinas next environmental challenge is hard to seeMa Tianjie, Feng HaoChinas chemical challenges Liu JianguoFashion detox: Chinas textile industry under pressure to clean up Wu Yixiu目录 CONTENTS4812162420中国化学品环境管理的挑战与机遇4“隐形污染”：中国环境治理下一站？海水蔚蓝，沙滩细软。人们悠闲地涂抹防晒霜，享受日光浴，并不时下水嬉戏。这幅美好画面的背面却让人不寒而栗：奇形怪状的畸形鱼类胚胎。这是香港浸会大学的一份最新研究展示的画面。该研究发表在权威的环境科学与技术上。科学家认为，造成这些鱼类胚胎变异的，正是海水中的防晒霜成分。二苯甲酮 3（BP-3）、乙基己基甲氧基肉桂酸酯（EHMC）和八氯乙烯（OC），这些普通人闻所未闻的化学品被作为紫外线吸收剂使用在防晒霜中。在人类皮肤表面，它们阻止紫外线的伤害，可一旦进入水中，它们却会导致斑马鱼的后代畸形，并通过食物链累积，最终可能回到人类体内。研究作者呼吁对此类化学品进行监管。被雾霾、黑臭河所困扰的中国，是否准备好了应对那些看不见的化学品“隐形杀手”？马天杰 / 冯灏中国已急速成长为全球最大的化学品生产国，对于市场上流通使用的数万种化学品，无论监管者还是普通民众都知之甚少。图片来源：Yan Cong/Greenpeace中国化学品环境管理的挑战与机遇与困扰中国的雾霾、黑臭河等显性的环境问题相比，这种隐藏在日用品中的污染看不见摸不着，其危害也不会立时显现。但中国已急速成长为全球最大的化学品生产国，对于市场上流通使用的数万种化学品，无论监管者还是普通民众都知之甚少。与“隐形污染”有关的环境健康问题也已呈上升之势。专家认为，以“显性”污染和安全事故为着眼点的管理体系并不适应对“隐形污染”的风险管理，改善化学品监管已刻不容缓。5在过去数年中，中国一定程度上扭转了一度极为严重的雾霾问题，让人看到其不断增强的环境监管体系的威力。被2015 年新版环境保护法和中央高层“生态文明”理念赋予更大权力的环境监管者可以对污染企业课以重罚，限制乃至关闭其生产，甚至将违法者关进监狱。2017年的北京，空气中的 PM2.5 水平比 2013 年下降了约35%，完成了被认为是极其困难的三年行动计划。显性的污染得到了控制，隐性的污染却还总体上处于监管空白状态。中国市场上已知正在流通的化学物质超过 45000 种（实际存在的化学物质可能远高于这个数字），但受到一定程度监管的只有约 3000 种。这些受监管的化学品大多属于易燃、易爆和剧毒的化学品，具有明确的显性危害性。而根据环保组织绿色和平的统计，45000 多种化学物质中，约 50% 具有潜在的危害性，可能对人体或环境造成长期负面影响。“中国目前化学品管理的重点在于具有确定危害、且主要是急性危害的危险化学品，”绿色和平项目主任王衍表示，“对于具有慢性环境和健康危害的化学品的监管较弱，尤其是在流通、加工使用和环境排放环节。”王衍介绍，长期以来，中国化学品管理侧重于劳动生产过程安全和化学事故防范，较少考虑人类健康安全和生态环境安全。中国化学品环境管理的挑战与机遇发育异常的斑马鱼胚胎 , 图片来源：Li, Adela Jing, et al. “Joint Effects of Multiple UV Filters on Zebrafish Embryo Development.“ Environmental Science & Technology 52.16 (2018): 9460-9467.显性 vs. 隐性防晒霜中的 BP-3，早已在 2012 年就被丹麦认定为一种潜在的内分泌干扰物，在个人护理用品中的使用受到欧盟法规限制。但是，和很多类似的化学品一样，它并没有进入中国法规的监管视野。北京大学环境科学与工程学院副教授刘建国曾撰文指出，一些高污染、高风险的落后化学品生产或使用工艺正逐步从发达国家转移到中国等化学品技术和管理水平相对落后的发展中国家。化学品环境管理形势严峻。中外对话访问的专家均认为，对化学品潜在危害的监管同时处于两个监管“盲区”：在环境监管中，重心在治理雾霾、黑臭水体这样显性的污染问题上，管理隐性污染的动力和优先级都不高。而在化学品监管中，因为传统上中国化学品管理的出发点在职业安全防范，因此重视的是易燃、易爆和剧毒等“急性”危害，对隐蔽的 、长期性的环境健康风险重视不足。公众环境研究中心（IPE）主任马军指出：“目前化学品环境监管存在的空白，一方面是相对隐性，另一方面是环境执法部门面对多重挑战但资源有限。”目前中国还没有制定国家层面的化学品管理专门法律。最高位阶的化学品管理法规是 2011 年修订的，由原国家安监总局（现应急管理部）牵头的危险化学品安全管理条例，对列入“危险化学品目录”的约 3000 种化学品进行规管。该条例脱胎于 1987 年的化学危险物品安全管理条例，此前已执行 20 多年，监管的化学品范围主要以易燃易爆和剧毒品为主。2011 年的修订首次将“对环境有害”列入“危险化学品”定义中，给化学品的环境管理开启了一定的空间。环保部在这一修订的基础上，于 2012 年推出危险化学品环境管理登记办法（试行），尝试对大约 84 种具有环境危害的化学品进行额外监管，要求企业上报这些化学品的生产和使用数据。遗憾的是，由于该法规层级很低（部门规章），执行乏力，已于 2016 年被废止 , 成为中国环境监管史上较罕见的一监管盲区62015 年天津化学品仓库爆炸后的现场。长期以来，中国化学品管理侧重于类似的事故防范，较少考虑人类健康安全和生态环境安全。图片来源：Wu Hao/Greenpeace中国化学品环境管理的挑战与机遇环境健康危机 曲折前行的监管监管滞后之时，环境健康危机却若隐若现。中国国家癌症中心今年发布的中国癌症负担显示，乳腺癌位居女性癌症发病率首位。数据同时显示，在 2000 年到2013 年之间，中国乳腺癌的年平均增长率约为 3.5%，在世界范围内增速位列首位。北京、上海、广州等城市的乳腺癌发病率已接近欧美发达国家水平。中国的环境监管者一直有意将化学品的环境管理纳入其管理体系。不幸夭折的危险化学品环境管理办法（试行）可以说是一次“带着镣铐的舞蹈”，在有限的授权范围内，它尽可能地搭建了一个化学品环境管理机制的雏形， 包括一个动态筛选和更新的“重点环境管理危险化学品名录”，考虑了持久性和生物累积性等“隐性”危害；要求生产和使用这些化学品的企业向主管部门登记，并每年填报重点化学品的释放和转移申报表。次“折戟”。行业媒体 REACH24h 在报道这一变化时透露：“环保部曾多次举办研讨会及相关培训，极力推进法规实施，但因缺乏相关配套文件及行业抵制等原因” 导致法规“难以为继。” 王衍认为：“中国化学品环境管理无论在整个化学品管理体系中，还是在环保系统内部，目前都比较边缘化。在世界卫生组织和联合国环境署最近的一次对内分泌干扰物质（EDC）的科学评估报告中，将世界范围内某些疾病的发病率上升部分归因于一些“尚未识别的环境因素”。这些疾病包括一些内分泌系统癌症（如乳腺癌和睾丸癌）以及生殖系统疾病和不孕不育等。而该研究也注意到：“工业化地区的人们所接触的一些化学品能够干扰激素的生成、运作和新陈代谢。”7其中最后一点被普遍认为是对化学品环境管理意义重大的 PRTR 制度的雏形，对于促进企业减少乃至替代这些化学品具有激励作用。无论是美国的 TRI 制度还是欧盟的PRTR 制度均被认为对有毒有害化学品的管理起到了促进作用。马军认为：“从国际经验来看，PRTR 制度不但能够让媒体、环保组织和公众利用公开信息施压高排放企业减排；而且能协助政府更加全面和精准的掌握企业有害化学品排放与转移情况。”该法规废止之后，化学品环境管理的政策制定者一度调低了目标，不再追求一步到位地建立整个化学品环境管理体系。一位接近政策制定的人士曾表示：“将化学品的管理融入到水、土壤、大气的治理中，是当前比较现实的方向。” 2017 年，环保部发布“优先控制化学品名录（第一批）”，就是借助国务院的水污染防治行动计划（简称“水十条”）的授权而制订的。该名录包括了 22 种持久性有机污染物和内分泌干扰物质等“隐形污染物”，并要求将其纳入废水的排污许可证进行管理，限制这些化学物质在产品中的使用并鼓励将其替代。今年 6 月，中共中央明确了土壤污染防治的方向，指出应“评估有毒有害化学品在生态环境中的风险状况，严格限制高风险化学品生产、使用、进出口，并逐步淘汰、替代。” 这一新的授权无疑将增加化学品环境管理的监管动力。但业内人士认为，将化学品环境管理分散在大气、水、土壤等领域中只是短期权宜之计。“这会增加监管的难度，也让公众的监督更加困难，”马军认为。从刚刚结束的一次化学品环境风险防控专委会年会上传出的消息显示，今年三月新成立的生态环境部仍在积极研究制订化学品环境风险管理专项法规，酝酿中的该法规将“以风险防范和源头控制为根本原则”，形成以“危害筛查、风险评估、分级管理（禁止、限制、优先控制等）的制度体系。”“从国际经验来看，PRTR 制度不但能够让媒体、 环保组织和公众利用公开信息施压高排放企业减排；而且能协助政府更加全面和精准的掌握企业有害化学品排放与转移情况。”马军公众环境研究中心主任中国化学品环境管理的挑战与机遇Chinas next environmental challenge is hard to seePublic health campaigns have been telling people for years to apply a generous layer of sunscreen when they go to the beach, and to make sure theyre fully protected before getting into the water. But recent research from Hong Kong Baptist University finds that sunscreens are having a shocking effect under the surface by causing deformities in fish em-bryos.Few people have heard of chemicals commonly used in sunscreens, such as benzophenone-3 (BP-3), ethylhexyl methoxycinnamate (EHMC) and oc-tocrylene (OC). When they are applied to the skin they block ultraviolet radiation, but in the water they also cause abnormalities in the young of zebrafish, and accumulate in the food chain where they can ultimately reach the human body. The slow, harmful effects of unregulated chemicals are a growing risk to public healthMa Tianjie, Feng HaoChina has quickly become the worlds largest manufacturer of chemicals but neither regulators nor the public know much about the tens of thousands of different substances being transported and used around the country. (Image: Yan Cong/Greenpeace)The authors of the paper, which was published in the journal Environmental Science & Technology, have called for regulations to cover the use of such chemicals in personal care products.Pollutants concealed in everyday products arent as noticeable as smog or foul-smelling waterways, and the damage they cause isnt immediately visible. But China is already the worlds largest manufacturer of chemicals and neither regulators nor the public know much about the tens of thousands of different substances being transported and used around the country.8中国化学品环境管理的挑战与机遇9In recent years, China has strengthened its system of environmental management and seen some impres-sive results. PM2.5 levels in Beijing in 2017 were 35% lower than in 2013 following a three-year action plan that was initially regarded as next to impossible. The 2015 Environmental Protection Law and the Party leaderships focus on “ecological civilisation“ have also empowered regulators to impose heavy fines on polluting firms and even shut down factories and jail offenders. Visible pollution is being brought under control, but hidden pollution is still mostly unregulated.There are about 45,000 chemicals known to be in cir-culation on the Chinese market (the actual number may be much larger), but fewer than 3,000 are reg-ulated. These include substances that present clear risks because they are explosive, flammable or high-ly toxic. However, Greenpeace has calculated that about half of the 45,000 chemicals could cause long-term harm to the environment or human health.“Chinas management of chemicals focuses on those which are dangerous and present definite and immediate risks,“ explained Wang Yan, toxics cam-paigner at Greenpeace.“ Management of chemicals Abnormal zebrafish embryos, from Li, Adela Jing, et al. “Joint Effects of Multiple UV Filters on Zebrafish Embryo Development“ Environmental Science & Technology 52.16 (2018)Seeing the dangerwhich have slower harmful effects on health and the environment is weaker, particularly when it comes to transportation, processing and use, and release into the environment.“Wang added that Chinas emphasis is on workplace safety and the prevention of accidents, with less thought given to peoples health and protection of the environment. For example, the BP-3 found in sunscreen was identified as a potential endocrine disruptor as early as 2012. Its use in cosmetic prod-ucts is restricted by EU regulation. But BP-3, like many other similar chemicals, is not regulated in China.Liu Jianguo, associate professor at Peking Univer-sitys College of Environmental Sciences and Engi-neering, has written that dangerous and polluting production methods and use of chemicals have shifted from developed to developing nations, such as China, where technology and regulations are less developed. Meanwhile, the use of the chemicals is causing a rise in environmental health issues. Experts say that systems designed to deal with visible pollution and accidental releases arent well-suited for managing hidden pollution, and urgent changes are needed to address this.中国化学品环境管理的挑战与机遇“Experts say that systems designed to deal with visible pollution and accidental releases arent well-suited for managing hidden pollution, and urgent changes are needed to address this.”10Experts interviewed by chinadialogue said that Chi-na faces a growing challenge to manage chemical risks in an environmentally safe way and that current measures are inadequate. One problem is that en-vironmental regulators are focused on more visible issues, such as smog and water pollution, and give little priority to hidden risks.Ma Jun, director of the Institute for Public and En-vironmental Affairs, added that “environmental law enforcement agencies are facing multiple challenges with limited resources“. China has no national law on the management of chemicals. The highest-level relevant rules are the Regulations on the Safety Administration of Dangerous Chemicals, revised in 2011 by the State Administration of Work Safety (now the Ministry of Emergency Management). These regulate about 3,000 substances, which are included on a register of dangerous chemicals. The regulations were devel-Regulatory blind spotsoped from a 1987 set which had been in place for 20 years and covered mainly explosive, flammable and highly toxic substances.The 2011 revision added “harmful to the environ-ment“ to the definition of dangerous chemicals, which allowed the regulation of chemicals for envi-ronmental reasons. The Ministry of Environmental Protection then published a trial method for regis-tering chemicals hazardous to the environment in 2012, including those representing persistent and bioaccumulative risks. It included extra regulations for 84 environmentally-harmful substances and re-quired firms manufacturing and using the chemicals to register and submit annual reports of releases and transfers.Unfortunately, these departmental regulations were not enforced properly, and in 2016 they were an-nulled a rare surrender for Chinas environmental regulators. Industry media outlet REACH24h said at 中国化学品环境管理的挑战与机遇The aftermath of the 2015 chemical warehouse explosion in Tianjin. Management of chemicals in China has long focused on preventing incidents like this, with less attention paid to protection of public health and the environment. (Image: Wu Hao/Greenpeace)