城市工業(yè)污染土地環(huán)境修復(fù)和再開發(fā)國際經(jīng)驗(yàn)項(xiàng)目

1、International Experience in Contaminated Industrial Site Management 城市工業(yè)污染土地環(huán)境修復(fù)和再開發(fā) 國際經(jīng)驗(yàn)項(xiàng)目大綱 第一部分：污染場地需解決的關(guān)鍵問題第二部分：美國的經(jīng)驗(yàn)和教訓(xùn)從超級基金到棕色地塊 第三部分：其它國家的經(jīng)驗(yàn)加拿大歐盟(英國,荷蘭)日本和臺灣地區(qū)第四部分：總結(jié)和幾點(diǎn)建議第一部分: 污染場地需解決的關(guān)鍵問題 Evacuated Industrial Sites搬遷后的場地（地面）45Polluted Land and Water企業(yè)搬遷后遺留的土壤和地下水污染問題某化工廠原址被污染的地下水某化工廠搬遷后污染土壤

2、的現(xiàn)狀某化工廠原址含持久性有機(jī)污染物的遺留工業(yè)固廢堆放點(diǎn)黃金寶地是“毒地” 2006年3月，由武漢三江地產(chǎn)公司競得后，迄今已整整荒蕪了5年 從“春江花月”到“.野生雜草而顯得荒涼破敗，與周邊的車水馬龍極不相稱” 中國棕色場地US EPA Definition of Brownfields?Brownfields site means real property, the expansion, redevelopment, or reuse of which may be complicated by the presence or potential presence of a hazardo

3、us substance, pollutant, or contaminant.棕色地塊：因污染問題影響到開發(fā)和利用的(城市)場地Contaminated Land vs. Brownfield污染場地和棕色地塊場地名稱: 北京紅獅涂料公司污染物: DDT; 六六六污染土方量：140,000 m3 修復(fù)工藝: 異位焚燒污染場地修復(fù)案例 (1) -中國棕色場地已經(jīng)開始治理重慶天原化工廠治理案例場地名稱:重慶天原化工廠污染物:二噁英；DDT，六六六；四氯乙烯;四氯化碳 污染土方量：50,000 m3 修復(fù)工藝: 異位焚燒(cement plant)現(xiàn)場清除污染土密閉運(yùn)輸至處置地點(diǎn)密閉貯存水泥窯焚燒

4、處置主要修復(fù)技術(shù)時(shí)間限制異位修復(fù)北京焦化廠場地名稱:北京焦化廠污染物:苯系物和半揮發(fā)性有機(jī)物(PAHs)污染土方量：up to 1,000,000 m3 修復(fù)工藝: 異位+原位；多種技術(shù) China BrownfieldsRedevelopmentProcess中國棕色地塊治理程序(follows US EPA/ASTM)一期初勘二期取樣評估三期風(fēng)險(xiǎn)評估工程修復(fù)方案工程修復(fù)第一部分: 中國棕色地塊需要解決什么主要問題？ 污染者付費(fèi)：原則和應(yīng)用（不必要的糾紛）技術(shù)和市場：成本和適用性（科技創(chuàng)新）管理程序：效率（優(yōu)化）和執(zhí)法（優(yōu)先）發(fā)展和（環(huán)境健康）保護(hù)：土地用途修復(fù)標(biāo)準(zhǔn)資金&融資（美國立法優(yōu)點(diǎn)）

5、誰付費(fèi)?標(biāo)準(zhǔn)，技術(shù)和市場管理：依據(jù)和執(zhí)法發(fā)展和（環(huán)境健康）保護(hù)誰付費(fèi)？費(fèi)用階段費(fèi)用（萬元）目前付費(fèi)者一期初勘業(yè)主,財(cái)政負(fù)擔(dān)二期取樣評估業(yè)主,財(cái)政,土地儲備中心三期風(fēng)險(xiǎn)評估財(cái)政,土地儲備中心工程修復(fù)方案8財(cái)政,土地儲備中心工程修復(fù)3億財(cái)政,土地讓價(jià)開發(fā)商示范城市(重慶) VS 多數(shù)城市第一部分: 中國棕色地塊需要解決什么主要問題？ 國有企業(yè)歷史悠久污染嚴(yán)重合資經(jīng)營(責(zé)任劃分)中外合資 進(jìn)入和退出國內(nèi)合資-”零”盡職民營企業(yè)(支付能力)集體企業(yè)(支付能力)銀行/投資者/潛在責(zé)任人(公平)?誰付費(fèi)？責(zé)任者標(biāo)準(zhǔn)，技術(shù)和市場：成本和適用性管理：依據(jù)，效率和執(zhí)法發(fā)展和（環(huán)境健康）保護(hù)第一部分: 中國棕色地

6、塊需要解決什么主要問題？ 工業(yè)場地(目前關(guān)注的焦點(diǎn))填埋場（責(zé)任者眾多）污水庫排污溝（責(zé)任者眾多）礦山（鄉(xiāng)企）回收利用拆檢場責(zé)任者眾多誰付費(fèi)？場地類型標(biāo)準(zhǔn)，技術(shù)和市場管理：依據(jù)，效率和執(zhí)法發(fā)展和（環(huán)境健康）保護(hù)第一部分: 中國棕色地塊需要解決什么主要問題？ 可接受的風(fēng)險(xiǎn)？當(dāng)前10-6 (政策問題）社會(huì)經(jīng)濟(jì)效益社會(huì)公平技術(shù)局限（TI;DL）市場承受能力誰付費(fèi)？標(biāo)準(zhǔn)，技術(shù)和市場管理：依據(jù)，效率和執(zhí)法發(fā)展和（環(huán)境健康）保護(hù)10-4 Dutch interference; Sweden and German (10-5)標(biāo)準(zhǔn)決定費(fèi)用和技術(shù)適用性Inorganic PollutantsPOPsVOCsS

7、VOCs 場地修復(fù)標(biāo)準(zhǔn)值（風(fēng)險(xiǎn)系數(shù)為10-6）與國外標(biāo)準(zhǔn)值的比較度（mg/kg）現(xiàn)場清除污染土密閉運(yùn)輸至處置地點(diǎn)密閉貯存水泥窯焚燒處置目前技術(shù)單一和市場不完善時(shí)間限制異位修復(fù)Figure 2-4 USA Source Control Treatment Projects 1982-2005 - Total of 977 projectsOther Ex Situ (43)Chemical Treatment - 9Neutralization - 7Soil Vapor Extraction - 7Soil Washing - 6Mechanical Soil Aeration - 4Open

8、 Burn/Open Detonation - 4Solvent Extraction - 4Phytoremediation - 1Vitrification - 1Other In Situ (20)Neutralization - 8Phytoremediation - 6Mechanical Soil Aeration - 3 Vitrification - 2Electrical Separation - 1Ex Situ Technologies (515) 53%In Situ Technologies (462) 47%異位53原位47Figure 2-4 USA Source

9、 Control Treatment Projects 2002-2005 - Total of 126Other Ex Situ (8)Incineration (off-site) - 3Open Burn/Open Detonation - 3Chemical Treatment - 1Neutralization - 1Other In Situ (6)Mechanical Soil Aeration - 2Phytoremediation - 2Flushing - 1Neutralization - 1Ex Situ Technologies (50) 40%In Situ Tec

10、hnologies (76) 60%原位60異位40中國污染場地治理市場“失?！钡谝徊糠? 中國棕色地塊需要解決什么主要問題？ (單一,昂貴)異位修復(fù)時(shí)間限制？土地價(jià)格和資金周轉(zhuǎn)壓力商業(yè)/公益用地(規(guī)劃問題）修復(fù)社會(huì)經(jīng)濟(jì)效益(政策問題）土地用途商業(yè)VS居民區(qū)公園/工業(yè)遺址/高爾夫市場成熟度(竟?fàn)?技術(shù)創(chuàng)新)誰付費(fèi)？標(biāo)準(zhǔn)，技術(shù)和市場管理：依據(jù)，效率和執(zhí)法發(fā)展和（環(huán)境健康）保護(hù)土地用途決定修復(fù)時(shí)間和技術(shù)開發(fā)時(shí)間第一要素第一部分: 中國棕色地塊需要解決什么主要問題？ 立法(依據(jù))技術(shù)規(guī)范(效率)管理機(jī)構(gòu)(執(zhí)行力)獎(jiǎng)懲制度(動(dòng)力)執(zhí)法(推動(dòng)力)誰付費(fèi)？標(biāo)準(zhǔn)，技術(shù)和市場管理：依據(jù)，效率和執(zhí)法發(fā)展和（環(huán)境

11、健康）保護(hù)第一部分: 中國棕色地塊需要解決什么主要問題？ 管理風(fēng)險(xiǎn)VS消除污染？土地用途風(fēng)險(xiǎn)/標(biāo)準(zhǔn)拆遷二次污染防護(hù)修復(fù)本身EMP/EHS資源利用（土壤地下水）綠色修復(fù)（生態(tài)，節(jié)能減排）誰付費(fèi)？標(biāo)準(zhǔn)，技術(shù)和市場管理：依據(jù)，效率和執(zhí)法發(fā)展和（環(huán)境健康）保護(hù) 第二部分:美國的經(jīng)驗(yàn)和教訓(xùn)從超級基金到棕色地塊FROM SUPERFUND TO BROWNFIELDS LESSONS & EXPERIENCE從超級基金到棕色地塊- 對中國污染場地修復(fù)的啟示ESD CHINADisasters, Public, Media, Politics & Law 環(huán)境災(zāi)難-公眾-媒體-政客-法律1967 Torre

12、y Canyon, England NCP 1967年英國托利峽谷號石油泄漏事件全國應(yīng)急計(jì)劃1978-80 Love Canal 1980Superfund1978-80年拉弗運(yùn)河事件1980超級基金法案1984 Bhopal India EPCRA/SARA 1984年印度博帕爾泄漏事件社區(qū)知情權(quán)/超級基金再授權(quán)1989 Exxon Valdez OPA1989年?？松托孤┦录臀廴痉ò?001 9/11 Terror Attack HSA 2001年恐怖襲擊國土安全法案歷史從來是驚人的相似Love Canal 拉弗運(yùn)河事件 During the summer of 1978, Uni

13、ted States President Jimmy Carter declared a federal emergency at the Love Canal, a former chemical landfill which became a 15-acre neighborhood of the City of Niagara Falls, New York. Love Canal 拉弗運(yùn)河事件 1980 Elizabeth NJToxic Waste Explosion伊麗莎白1980危廢大火April 21, 1980: Chemical Control Corporation ma

14、ssive chemical explosion in New Jersey, that prompted the Superfund Act and changed standards for the handling of industrial waste in America第一部分: 超級基金歷史 立法階段（1976-1980）探索（摸石頭過河）年代（1980-1989）改革和創(chuàng)新時(shí)期（1989-1995)蕭條(反思)時(shí)代(1995-2000)再開發(fā)（棕色地塊）（2001/2002-)Resource Conservation and Recovery Act (RCRA) enact

15、ed The Toxic Substances Control Act (TSCA)A series of chemical reactions ignite a large chemical-waste treatment facility in Bridgeport, New JerseyState of Emergency declared at Love Canal, New York197677787980818283House and Senate hold hearings on toxic waste dump dangersA toxic waste fire burns f

16、or 10 hours in Elizabeth, New JerseyComprehensive Environmental Response, Compensation, and Liability Act (CERCLA or Superfund) enactedSuperfund successfully responds to the “Valley of the Drums” site in KentuckyEPA published the Hazard Ranking System (HRS)First multi-generator settlement reached wh

17、ere the parties implemented cleanupRevised National Oil and Hazardous Substances Pollution Contingency Plan provides first national guidelines for implementing CERCLABirth of environmental justice movementEPA issues the first National Priorities List (NPL)More than 500 residents of Times Beach, Miss

18、ouri are relocated拉弗運(yùn)河事件伊麗莎白大火超級基金法國家應(yīng)急響應(yīng)計(jì)劃修改8486878889909185Congress passes the Hazardous and Solid Waste AmendmentsEPA initiates “Enforcement First” policyOil Pollution Act enactedDefense Base Closure and Realignment Act enactedEPA revises the Hazard Ranking SystemEPA expands the National Oil and

19、Hazardous Substances Pollution Contingency PlanCongress passes the Pollution Prevention ActToxic gas release in Bhopal, India kills 3,800First Site is deleted from the NPLCongress passes the superfund Amendments and Reauthorization ActFirst emergency planning and community right-to-know law“90-Day S

20、tudy” Management Review of the Superfund ProgramExxon Valdez spills 11 million gallons of crude oil印度博帕爾毒氣泄漏事件超級基金授權(quán)法案（社區(qū)知情權(quán)）90天基金法管理改革研究埃克森石油泄漏石油污染法92949596979893“30-Day Study” on Superfund improvements is completedSuperfund Accelerated Cleanup Model (SACM) streamlines the traditional Superfund res

21、ponse processConstruction Completions established to more accurately reflect the work accomplished on Superfund sitesBrown fields Initiative launchedFirst Round of Administrative ReformsOSWER Environmental Justice Task Force is createdSecond and Third Rounds of Administrative ReformsEPA introduces t

22、he Brownfields Action AgendaSuperfunds emergency response program expands to address terrorist acts$2billion in Superfund cost recovery settlements reachedRe-authorization failed (No more tax revenue)Brown fields National Partnership launched30天超級基金改進(jìn)研究超級基金加速修復(fù)模型棕色地塊開發(fā)倡議第一輪改革第二輪和第三輪改革超級基金再授權(quán)失敗992000

23、5,000th emergency removal actionSuperfund Redevelopment Initiative announcedBrown fields Initiative wins Harvards Innovations in Government Award700th Construction Completion20th Anniversary of Superfund01B U S H A D M I N I S T R A T I O N P E R I O D020405060708032009Brown fields Act; Amendments t

24、o CERCLAO B A M A Focus or relief or liability (small and innocent owners) Allocate fund (200millionyear) Redevelopment of site (inner cities) Efficiency and Effective management Funding EPA Explicit look into land use Long term management of superfund21st Century Principle for SuperfundEPA Superfun

25、d Action Planresponding 2003 120 Day recommendationRecovery Act (Stimulation Package) 600 million (50 NPL site) Limit3% for management and oversight Quick Spending “120 Day Study” 棕色地塊超級基金修正法案21世紀(jì)超級基金原則EPA超級基金三輪改革和創(chuàng)新 第一輪變革（1989-1993）90天(1989)+30天(1991)研究 (宏觀戰(zhàn)略：“Enforcement first” 執(zhí)法第一and “worst site

26、 first優(yōu)先排序; SACM快速?zèng)Q策修復(fù)) 17 項(xiàng)改革方案程序簡化;管理效率;訴訟成本;責(zé)任公平;修復(fù)技術(shù)有效性和降低技術(shù)成本; 技術(shù)創(chuàng)新(15); 公眾社區(qū)參與第二輪變革（1995）12 項(xiàng)改革方案 Brownfield Initiative棕地概念第三輪變革（1995) 20 項(xiàng)改革方案 “常識”理性，開發(fā)，創(chuàng)新EPA超級基金變革原因 早期樂觀期望和實(shí)施中現(xiàn)實(shí)落差過大場地調(diào)查程序復(fù)雜而且重復(fù)很多低效率“污染者付費(fèi)”原則公平,但大量訴訟拖延修復(fù)且費(fèi)用高昂（從嚴(yán)/共同連帶/可追溯責(zé)任并不公平）土壤污染問題復(fù)雜,修復(fù)技術(shù)局限性大而且成本太高早期樂觀期望和實(shí)施中現(xiàn)實(shí)落差 立法后(早期)的現(xiàn)實(shí)

27、是從“零”開始場地污染范圍 - underestimated健康風(fēng)險(xiǎn)程度 - uncertain規(guī)章、制度、標(biāo)準(zhǔn) zero start修復(fù)技術(shù)和費(fèi)用 not available and costly結(jié)果是1980-1989摸石頭過河-進(jìn)程太慢早期樂觀期望和實(shí)施中現(xiàn)實(shí)落差 EPA早期預(yù)計(jì)是76-227億1999完成1995年GAO審計(jì)是275場地僅完成施工2/3需要長期運(yùn)營和維護(hù)320億(2040)EPA對O&M毫無準(zhǔn)備期望值管理PR和輿論宣傳1998 GAO審計(jì)發(fā)現(xiàn)EPA平均用年完成NPL(法律要求小于4年)場地修復(fù)時(shí)間不斷延長(1986-1989年年;到1996年已達(dá)年)速度慢-效率低-程序

28、復(fù)雜Transaction法律追溯訴訟費(fèi)用高昂基金14% 用于EPA法律費(fèi)用(1999-2007) Identify PRPs查責(zé)任者Negotiate with PRPs談判Litigate PRP打官司Enforcement Support執(zhí)法GAO調(diào)查50公司法律費(fèi)用 (1993-94) 平均150萬/公司1/3用于打官司小企業(yè)更高原因在于沒有污染歷史記錄“污染者付費(fèi)”原則:費(fèi)用高昂;拖延修復(fù)進(jìn)程;對小企業(yè)不公平土壤污染復(fù)雜性和修復(fù)技術(shù)局限性拖尾現(xiàn)象和修復(fù)標(biāo)準(zhǔn) (TI&DL)反彈技術(shù)挑戰(zhàn): 拖尾效應(yīng)產(chǎn)生的原因拖尾效應(yīng)土壤結(jié)構(gòu)/土層分布不均污染物在土壤孔隙中的擴(kuò)散速率變化修復(fù)技術(shù)不合理污染

29、物的分布不均復(fù)合污染物的組成原位原位異位原位異位原位原位異位強(qiáng)化SVE/SBV合理設(shè)計(jì)多相提取、空氣/生物瀑氣強(qiáng)化SVE/SBV強(qiáng)化SVE/SBV風(fēng)險(xiǎn)評價(jià) 超級基金法導(dǎo)致大量棕色地塊In the early 1990s, the U.S. Conference of Mayors say brownfields one of the most critical problems facing cities and estimated over 500,000 sites棕地成為美國城市頭號問題全國有50萬(1990)新澤西NJ ECRA law Late 1980s emerging prob

30、lems with ECRA Alan Mallach, director of housing and economic development for the city of Trenton: It was an unmitigated disaster “you had to be insane to get involved in a serious cleanup situation” “除非你有神經(jīng)病，請別碰污染場地”Site Screening & Assessment (PA, SI, ESI, RI)Regional Decision TeamEarly ActionLong

31、-Term Hazard RankingEarly Action CompleteLong-Term Action CompleteDeletion from NPLLong-Term Action Removal Action as NecessaryEnforcement Activities/State Participation/Community RelationsEnforcement Activities/State Participation/Community RelationsTraditional Superfund ProcessSuperfund Accelerate

32、d Cleanup Model (SACM)Site DiscoveryPreliminary Assessment (PA)Site Assessment (SI)Expanded Site Inspection (ESI)Hazard Ranking System (HRS)National Priorities List (NPL)Remedial Investigation (RI)Baseline Risk AssessmentFeasibility Study (FS)Regulatory Requirements Remedial GoalsSelection of Remedy

33、Record of Decision (ROD)Remedial Design (RD)Remedial Action (RA)Operation and Maintenance (O&M)NPL Deletion變革成果 I 簡化程序合理修復(fù)調(diào)查與技術(shù)Remedial Investigation Techniques and Technologies 模式創(chuàng)新系統(tǒng)規(guī)劃動(dòng)態(tài)方案實(shí)時(shí)現(xiàn)場監(jiān)測修復(fù)調(diào)查與技術(shù)Remedial Investigation Techniques and TechnologiesInnovative Remediation Technologies: Field-Scal

34、e Demonstration Projects 示范項(xiàng)目in North America, 2nd Edition, Year 2000 Report ;The Remediation Technologies Screening Matrix ;Remediation Technology Demonstration Project Profiles 技術(shù)創(chuàng)新Emerging Technologies 雨后春筍Presumptive remedies Municipal landfills VOCs in soils Wood treating operations Contaminate

35、d ground water Metals in soils Cap with leachate and gas collection Soil vapor extraction (SVE), multi-phase extraction Bioremediation, thermal desorption, incinerationPhased approach, ex-situ treatment Reclamation/recovery, immobilization 變革成果 II 優(yōu)先認(rèn)可技術(shù)典型場地指定修復(fù)方法 現(xiàn)在基于土地用途和風(fēng)險(xiǎn)管理制訂修復(fù)標(biāo)準(zhǔn)，規(guī)劃和實(shí)施污染場地修復(fù)變革成果

36、 III 風(fēng)險(xiǎn)管理早期是“永久性”修復(fù)和污染物去除Today, the NCP requires the EPA to undertake a “site-specific baselinerisk assessment” for each cleanup site Brownfield Reform and Small Business Liability Relief Act of 2002 Small business liability exemption (de minimis & de micromis exemption) （小企業(yè)） No future Federal enfo

37、rcement (volunteer cleanup) （鼓勵(lì)自愿修復(fù)）Migrating pollution (contiguous owner) exemption （外來污染） Due diligence (AAI) (bona fide perspective purchaser)盡職調(diào)查 ASTM satisfy innocent landowner defense 變革成果 IV-棕色地塊法案免責(zé) Small Business Liability Relief and Brownfields Revitalization Act (P.L. 107-118) Cleanup Gra

38、nts贈(zèng)款Targeted BrownfieldsAssessmentsJob Training Grants贈(zèng)款State Response ProgramAssessment Grants贈(zèng)款BROWNFIELDSPROGRAM資金 BrownfieldsRedevelopmentProcess棕色地塊開發(fā)程序高度簡化Source: U.S. EPA, 2001. Technical Approachesto Characterizing and Cleaning Up BrownfieldsSites. Report Number EPA/625/R-00/009.National Ri

39、sk Management Research Laboratory,Office of Research and Development, U.S. Environmental Protection Agency,Cincinnati, OH. November 6, 2001.009/625R00 009.pdf) 一期初勘二期取樣評估三期風(fēng)險(xiǎn)評估工程修復(fù)方案工程修復(fù)第二部分: 美國經(jīng)驗(yàn)小結(jié)從超級基金到棕色地塊解決什么主要問題？ 污染者付費(fèi)：原則和應(yīng)用（不必要的糾紛）技術(shù)和市場：成本和適用性（科技和模式創(chuàng)新）管理程序：效率（優(yōu)化）和執(zhí)法（優(yōu)先）發(fā)展和（環(huán)境健康）保護(hù)：土地規(guī)劃修復(fù)資金（美國立法優(yōu)點(diǎn)）第二部分:從超級基金到棕色地塊對中國污染場地修復(fù)的啟示 宏觀層面不要過于樂觀、防止急功近利正確的原則也可能導(dǎo)致失敗現(xiàn)實(shí)、分階段前進(jìn)才是成功的對策修復(fù)目標(biāo)應(yīng)尊重社會(huì)背景和經(jīng)濟(jì)