美国农业焚烧管理对中国秸秆禁烧管理的启示

doi:10.18402/resci.2018.12.06

摘要/Abstract

摘要：

为解决秸秆露天焚烧给中国环境保护与农村建设带来的难题,本文系统梳理了美国农业焚烧管理中最主要的内容即烟雾管理计划,重点研究了烟雾管理计划对中国秸秆焚烧治理的启示。通过归纳分析表明,美国烟雾管理计划通常由焚烧授权、烟雾管理组件、公众教育、监督与执法、实施效果评价等5个方面组成,具体做法是针对不同等级的焚烧规模进行不同的分级管理,制定规范的焚烧授权标准以明确是否可以焚烧,依据烟雾扩散能力、风向、安全距离等确定可焚烧时间和可焚烧区域、最大可焚烧量,并进行严格的执法监督和处罚。基于上述分析,建议中国出台专门针对秸秆焚烧治理的法律规定,制定秸秆焚烧授权管理办法,因地制宜制定秸秆焚烧气象指数分级办法,加强秸秆焚烧过程中的管控工作。

关键词: 美国, 秸秆禁烧, 农业焚烧, 烟雾管理计划, 启示, 中国

Abstract:

Straw burning is a behavior that field crops are burned in the field directly after harvesting. As a biomass resource, straw was burned every year in the countryside, which has created major environmental problems including serious air pollution. The United States regards straw burning as an important part of agricultural burning and has introduced relevant measures to solve agricultural burning. In order to overcome the difficulty that straw burning makes it difficult to protect the environment and construct the rural area, the article systematically summarized the domestic and foreign laws and regulations in this area, especially the Smoke Management Program (SMP) of agricultural burning in the United States and tried to improve China's air quality. The SMP typically consists of five parts: burning authorization, smoke management components, public education, supervision, enforcement, and the evaluation of implementation effectiveness. The specific approaches of SMP for managing open burning are to carry out different classification management for different grades of burning scale, to establish a burning authorization standard to determine the feasibility of burning including time, area and maximum volume. Strict law enfor-cement and punishment were required to ensure that the policies can be effectively implemented. Systematic and standardized measures have made agricultural incineration in the United States acceptable to the public, without causing excessive air quality problems. According to the essential condition of China and combining the experience of the practice on SMP in the United States, it is urgent to set up straw burning control group, the relevant legal provisions for straw burning. According to the locally meteorological condition, topographic and geomorphic conditions, and the different demand of prevention and control of draw burning, management and controlling of the burning process should be strengthened to prevent the appearance of too much smoking, which would affect production and people's livelihood and may cause casualties from fire accidents.

Key words: United States, straw prohibition burning, agricultural burning, smoke management program, enlightenment, China

覃诚, 毕于运, 高春雨, 王亚静, 王红彦, 孙宁. 美国农业焚烧管理对中国秸秆禁烧管理的启示[J]. 资源科学, 2018, 40(12): 2382-2391.

Cheng QIN, Yuyun BI, Chunyu GAO, Yajing WANG, Hongyan WANG, Ning SUN. Enlightenment of the U. S. agricultural burning management on straw burning management in China[J]. Resources Science, 2018, 40(12): 2382-2391.

图/表 7

图1

表1

美国怀俄明州SMPⅠ和SMPⅡ农业焚烧管理简明要求"

要素	SMP Ⅰ	SMP Ⅱ
分级标准	0.25 t/d ≤ PM10<2 t/d	PM10≥2 t/d
焚烧登记	自愿但鼓励登记	鼓励在1月31前登记,提早登记可优先安排。必须在期望焚烧时日前提早2周登记
提前通告	焚烧活动当事人必须在点火前提前1小时通告怀俄明州环境质量部空气质量局（the Wyoming Department of Environmental Quality-Air Quality Division,WDEQ-AQD）;如果是周末焚烧,必须在周末前通告。通告方式包括电话、传真、E-mail等,需要提供的主要信息包括当事人姓名和联系方式、计划焚烧的具体位置等	焚烧活动当事人必须在计划焚烧的前1天上午10点前通告WDEQ-AQD;如果是周末焚烧,必须在周末前通告。通告方式包括电话、传真、E-mail、书面报告等,需要提供的主要信息包括当事人姓名、身份证号和联系方式、计划焚烧的日期、预估焚烧量和最大可能焚烧量等
计划变更	不考虑变更	通过对区域气候条件的分析,WDEQ -AQD可以变更焚烧计划,调减焚烧面积和堆烧体积,或将焚烧时间推迟到适宜焚烧的某一天。如果变更焚烧计划,WDEQ-AQD必须提前一天,在下午3点前通知焚烧活动当事人;如果原计划是周末焚烧,必须在周末前通知当事人
焚烧后的报告	SMP Ⅰ和SMP Ⅱ都需要在焚烧活动完成后6周内提交焚烧报告
烟雾管理培训	自愿参与	焚烧前必须接受培训
公示与通告	以辖区消防当局为主,辖区消防当局与焚烧活动当事人共同负责焚烧活动公示与通告	以辖区消防当局为主,辖区消防当局与焚烧活动当事人共同负责焚烧活动公示与通告
公示与通告	必须通知周边0.80 km以内的居民	必须通知周边16.09 km以内的居民
替代焚烧（综合利用）手段	鼓励采用替代焚烧手段	填写替代焚烧的可行性手段以及不实施替代焚烧的原因,帮助WDEQ-AQD了解和消除行政壁垒,促进生物质资源综合利用
减排焚烧技术	鼓励采取减排焚烧技术	采用焚烧排放最小化的技术,可优先获取焚烧许可、费用减免等方面的支持
烟雾扩散评价	白天,轻烟,下风向0.80 km范围内无人居住。不具备上述条件,烟雾扩散评价结果为“不适宜焚烧”	烟雾扩散条件“好”、“较好”或“适当”,下风向16.09km范围内无人居住。不具备上述条件,烟雾扩散评价结果为“不适宜焚烧”
空气质量监测	现场实时观察	目视观察：现场实时观察和记录设备观测：对下风向16.09 km内的居民区和空气质量“未达标”地区,以及下风向48.28 km内的联邦Ⅰ类地区,按照要求安装足够数量的仪表,进行空气质量的实时监测
长期规划	对于年焚烧PM10排放量超过100t的当事人或代理机构,要撰写3年期的规划报告,并于每年1月底之前递交给WDEQ-AQD。规划报告内容大体包括：每次焚烧活动的焚烧位置、焚烧面积和堆烧体积、植被类型和焚烧类型等;过往3年的实际焚烧量和利用量,未来3年的计划焚烧量和利用量

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州名称	焚烧授权管理部门	焚烧授权标准
阿拉巴马州	州林业委员会	单次焚烧超过0.10 hm²须获得授权许可
阿拉斯加州	州野火协调组	全年内焚烧面积累计超过16.19 hm²需要书面许可
阿肯色州	州林业委员会调度中心	根据离烟雾敏感区域距离、焚烧时日类别、焚烧类型确定需授权的焚烧量
加利福尼亚州	州空气质量委员会	单次焚烧面积超过4.05 hm²或预计可吸入颗粒物排放规模超过1t必须获得授权
佛罗里达州	州林业服务局	根据离烟雾敏感区域距离、焚烧时日类别、焚烧类型确定需授权的焚烧量
路易斯安那州	州农林部分理中心	焚烧导致PM10排放量超过1t或排放体积超过141.58m³,需要授权
密歇根州	州自然资源部	单次超过8.09 hm²的焚烧需要授权
明尼苏达州	州自然资源部	根据离烟雾敏感区域距离、焚烧时日类别、焚烧类型确定需授权的焚烧量
内华达州	州环境保护部	所有PM10排放量超过1t的计划焚烧必须获得授权许可
新墨西哥州	州环境部空气质量局	焚烧面积超过4.05 hm²必须获得授权许可
犹他州	州空气质量局烟雾管理协调组织	单次焚烧面积超过8.09 hm²或堆积焚烧体积超过约850 m³的焚烧活动须获得授权许可
怀俄明州	州环境质量部空气质量局	单日焚烧的可吸入颗粒物排放量超过0.25 t须获得授权许可

焚烧时日分级	DI范围	焚烧规定
I	< 2 000	禁止焚烧
II	2 000~4 000	只能早上11点到下午4点之间进行焚烧,一旦出现逆温层时禁止焚烧
III	4 000~8 000	可在无逆温层的白天进行焚烧
IV	8 000~16 000	可在任意时间段焚烧。夜间焚烧时一旦地面风速超过4 mile/h,应采取逆风焚烧
V	>16 000	风速过大,利于烟雾扩散,但要预防火势不受控制

与烟雾敏感区的距离/km	焚烧时日级别可焚烧量/t
与烟雾敏感区的距离/km	Ⅱ	Ⅲ	Ⅳ	Ⅴ
0.32~8.05	488	560	720	1 280
8.05~16.09	1 000	1 200	1 840	3 200
16.09~32.19	1 840	2 240	4 200	7 200
≥ 32.19	2 880	3 280	6 400	11 600

州名称	主要执法规定
怀俄明州	参照《怀俄明环境质量法案》（Wyoming Environmental Quality Act）焚烧授权规定。《怀俄明州空气质量标准和条例》（Wyoming Air Quality Standards and Regulations）规定由空气质量局人员对焚烧事件进行调查以评估是否违法。根据《怀俄明环境质量法案》,违规焚烧处罚,每次违法行为处以每天不超过1万美元的罚款^[18]
阿拉斯加州	参照《阿拉斯加州行政法典》（Alaska Administrative Code）禁止焚烧规定,由阿拉斯加环境保护部负责焚烧执法。如有需要,可以发布补充条例。倘若监管不力,则需追究ABM负责人法律责任;倘若焚烧者违规焚烧,则可撤销其焚烧资格^[20]
佛罗里达州	参照《佛罗里达州行政法典》和《佛罗里达州法令》烟雾排放规定。州农业部农业执法办公室根据违规焚烧制定焚烧评价积分表,如果焚烧者违规焚烧积分超过14个点,将失去焚烧资格^[23]
密歇根州	密歇根州公共土地焚烧需在防火监督员监督下进行,违规焚烧将受指定机构处罚。对私人焚烧违规焚烧进行计分,累积到一定数值将失去焚烧资格^[25]
内华达州	参照《内华达州修正法令》（Nevada Revised Statutes）第445b.230条和《内华达州行政法典》（Nevada Administrative Code）第445b.450条中的焚烧规定。《内华达州修正法令》第445b.230条规定了授权标准。《内华达州修正法令》第445b.450条要求涉嫌违规责任人接到环保局书面通知后限期整改。每次违法行为处以每天不超过1万美元的罚款^[27]
密苏里州	密苏里州下设5个区域办事处负责焚烧活动执法监督,并依法开展违法焚烧处罚^[30]