Академический Документы
Профессиональный Документы
Культура Документы
Chinas
Environment al
Super Minist ry
Reform:
Background,
Challenges, and
t he Fut ure
X QIU
Ho gl
LI
X QIU
P .D.
v
g f llow
V o L w S ool. Ho gl LI D
o
of L w P og
, Y l -C
A o
o .*
Editors Summary
I M
2008,
C
N o l P opl Co g
lv
fo
S
E v o
l Po o A
o o
M
of E v o
l
Po
o .
fo
g
v o
l
po
o
o
v
l , pol
l w ll,
o
k g pow ,
o o
. Howv ,
wM
o fo
lg l o ,
g o
o
llo o ,
w k
l-lo l
g
.F
fo
o fo
o
v lw lg l o
l g g l
o fo
x
g g l o ,
l
of oll o v f
wo k ,
ppl
o of
vpp o
o
l-lo l l o
p.
M
15, 2008, C
El v
N o l P opl Co g
p
p
fo
(SMR) o o p opo
S
Co
l
v p
, o l o
o of wo o
o p vo
o
p
.
p po
of
SMR w o vo ov l pp g gov
l po l
o
g p
w
l
o
lo l l
f
o . O of
g lg w
lvo of
S
E v o
lPo
o A
o
(SEPA) o
M
of E v o
lPo
o (MEP),
w
w lo f o
v o
l SMR.
f
o p
o
fo
o
of o p
v
po
l
p
v
f
wo k.1 I o
opo o o p
v
g
oo
o , v l p
g
o
w
,
p
,
o
l
go l
po
l
.B
l g g
po l
o ,
fo
ll
o
p
l k o
p
l
, oo
gl
p
op w
o p
v po l
fo
l pl p p v , vo
g ov l pp g
po
l
o .
,
v
v o
.
D
g
SMR, MEP w
pg
w
o l
p
o
og z o l
gov l po
l .2
o
o g pol
l
w ll
o
of C
l gov
o vo
lp o
o .
A l
o
kg o
of
SMR,
follow
o of
o v o
po v
p
of
SMR
v o
lpo
o
o.
A l
l z
g
po l
of
v o
l po
o
v f
wo k, w
v o
l SMR
po
ll olv
of
o o
. F ll ,
A l p
o
o o
k
fo f
v lop
.3
1.
2.
3.
* X QIU wo l l k o
k
C
S ol
p Co
l
USAID
g
o
ppo fo
f llow p
P of. T
g YANG, V o L w
S ool,
J f K
L
, J.D. 2010
of V o L w S ool.
o wo l l o l k o
k J
f T
, D
o of
C
E v o
Fo
,Wlo C
, P of. J o Co , N w Yo k U v
L w S ool, A W ll , Ex
v D
o , Y l -C
A o
o ,
P of .
H g LIU, Z p g LI,
D j GU, S Y -S U v
L w S ool. All
o
v o
l
o ow .
39 ELR10152
Al o g
v
xpl
o of p
,
o o o
o of
gl
o
g ov l pp g o lo l l
p
l po
l
. See SHI Y j & SHI Z gw , Several
oughts on Promoting the Reform of Super Ministry, 2 Ch inese Pub. Admin.
9-11 (2008); SHI X
& SUN F f g, On Preventing Negative E ects of
Super Ministry, 3 Ch inese Pub. Admin. 29-32 (2008); P opl D l ,
O
lC
C
l N w Ag
, What Is Super Ministry?,
p://gov.
p opl . o . /GB/46728/114889/
x.
l (l v
D . 21, 2008).
HUA J
,S
Co
lo
S
-G
l, Instruction on Institutional Reform of China State Council, M . 11, 2008, p://www.
o g. /z /
z /2008-03/12/ o
_5190487.
(l v
D . 21, 2008).
lo of l
o gov
o l fo
C
,
o
o
SMR. A of J
9, 2008,
p
v
l o C
SMR w
follow g: CHEN T x g, A Frame With Big Departments:
A New Rout for Reforming the Governmental Institutions, 2 Acad. Res. 40-47
(2008); ZHANG C
gx , e Analysis on the Relations Between Big Ministry
and Small Government, 5 Ch inese Pub. Admin. 36-38 (2008); CHEN W , e
inking of Certain Questions for Super Ministries System Reform, 2 J. Sich uan
Admin. C. 22-24 (2008); WANG Y k , Analysis on Super Ministry Reform
in China and Its Challenges, 3 Tr ib. St udy 52-55 (2008); SHI Y j & SHI
Z gw , supra o 1. How v , o of
fo o
v o
l SMR.
2-2009
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
I. Background of Environmental
Institutional Reform in China
Ub
,
b
b
D
S
1984,
19
: (1)
.S
P
C
N
C
z
19 ,
P
C
.D
S
E
P b
.8 I D
D
E
N
E
C
P
.4
b z
E
Ub
C
P
b
S
b
;
;( )
S
E
C
j
(3)
S
S
P
.
b
I
H
E
N
E
19 3. A
C
.
U
D
P
E
, C
C
P
A
L
5,
I 1989,
C
19 9 E
D
S
:
.5
,C
T
I
.
P -
E
)b
P
SEPA
A
S
E
(SEPA). H
,
S
C
S
,
,
C
q
,
z
.C
b
C
.
b
1998,
I 19 8, C
b
P
b
.9
I M
8, SEPA
MEP (
S
C
b
b
b
S
C
SMR). I
.S
b
,
b
MEP
b
b z .
,
C
P
4.
5.
6.
E
z
A
LI H
, Discussion on Chinas Environmental Supervision and Management
System, 5 J. Hunan Pol .-Legal Cadr e C. 53-56 ( 5).
C
C
, . 11 (19 8), available at
:// .j .
. . /
.
? = 89
= .
F
C
j
,
C
O
z
N , Homepage,
://
.
. /z /z /
_1 3 61.
(
D . 8,
8).
2-2009
O
z
(OECD)
198 .6
L -
.
8.
.1 I
NEWS& ANALYSIS
:L
C .
F
://
b.
3).
, b C
. / b/
, 8,
11.
Administ r at ion in Devel oping
39 ELR10153
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
39 ELR10154
: (1)
;( )
;
.11
-
; (3)
(4)
A
SMR, C
.A
OECD,
: (1)
;( )
-
2-2009
;
S
b
b
b
81
b
113,
15,
b
b
35,6
b
16,
.
-b
b
I
.1
, b
.16
,b
b
,
( )
.13
b
MEP
A
.
b z
,
.
C
6, SEPA
, 85
q
.I
95
59. %, 35.4%,
161
5. A
,
,5
4.4%
,
,
C
,
b
1 %
,
;
-Y
C
S
P
.W
C
,
.A
Report on the State of the Environment in China,
.O
4 %
b
,
8%
b
I
, 43.4%
,
6
( )
.
S
MEP
j
,
: (1)
; (3)
(4)
Id.
Id.
Id.
SEPA, SEPA Announced t h e Per for mance of Envir onment al Goal s in
t h e Tent h Five-Year Pl an ( 6), available at
://
.
. . / j /
z b/
6 4/
6 41 _ 5 14.
.
C
.I
U
11.
1 .
13.
14.
b
b
.D
.
,
.18
E
C
b
94.4%
.14 C
,
.
b
6
5. O
.1
SMR.
b
;
,C
.A
b
: (1)
,
b
(4)
.A
.S
196,
4 5
; (3)
b,
.D
,
.15
,
S
MEP
.
15. SEPA,
6 Repor t on t h e St at e of t h e Envir onment in Ch ina 5, 43
(
).
16. Id. 81.
1 . Id. 53.
18. Id.
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
2-2009
NEWS& ANALYSIS
39 ELR10155
,
S
;
,
5
.
b
b
b
C
SEPA
.
,
I J
5, SEPA
j
L
P
I
3
3E
j
-
.19
C
B
, SEPA
b
b b
S
C
.A
,
MEP
.
,
,
-
b
b
,
E
.S
-
j
C
P j
C .
C .
-SEPA. I
q
j
Wb
.I
q
,
b
G
D
P j
SEPA,
.I
SEPA
.I
b
,
,
,
.
.M
b
b
.A
: [T]
b
-
. 5 I
;
, zz)
,
b
;
U
). S
,
SEPA
MEP
MEP
). 1
, C
.
.F
.S
;
,
,
b
,
j q j
b
z
z
(j j ,
b
(
b
. 3
,
C
.U
.B
,
. E
,
SEPA b
C
MEP,
-
.W
19. C
O
L
S
C
,
. 8 11.
. Max We er , Economy and Societ y: An Out l ine of Int er pr et ive Sociol ogy (U
C
P
19 8).
1. GAO Y , Analysis on Positive and Negative Impacts of Traditional Administrative Culture to Construction of Harmonious Society, 6 Th eor et ical Expl or at ion
1 9-31 ( 5).
(EIAL) b SEPA
I 5, SEPA
j
EIAL
, Environmental Storm in 2005, Ch ina Net ,
://
/z
/ j j/1164411.
(
D . 1,
5. O J
3
j
18,
. See XIONG Z
.
.
. /
8).
3. A
, 9
3
j
.
S N , 29 Out of the 30 Projected Were Suspended Due to Violation of Environmental Assessment Requirements Resume,
://
.
.
. / /
5- 41 / 44856
13 .
(
D . 1,
8).
4. M
b
b
,
,
,
,
b
.
5. SHU S
, Environmental Protection Issues Have Always Been Political Issues, 1 Gr een Wor l d 16 (
).
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
39 ELR10156
.F
b,
S
C
SEPA
EPL A
q
MEP
MEP. C
,
b
. I
S
C
.B
W
S
.O
,C
,
SEPA,
,
,
W
M
S
S
,
,
C
19 . I
C
-
,
S
S
W
A
-
S
B
, SEPA
b
E
F
S
S
(SAWS). I
C
SAWS
SAWS.
-Y
EIA
P
,
b
.6 A
FYP,
EIAL C
.A
1,
MEP
O
C
.84
MEP
S
S
,
MEP
b
.W
MEP
W
Yq
C
b
MEP
,
EIA q
.
,
MEP
z .I
b
1.64
5
.3
b
,
FYP.
b
S
L
M
j
b
W
b
b
,
A
8.
(EIA)
P ,
b
q
.I
5
.
S
D
(FYP).
A
S
C
N
5
SEPA
.C
35%
, SEPA
.H
.O
8 %
.9I
b
S
C
C
L
C
,
.
S
2-2009
.
C SEPA,
MEP
:
C
.
SEPA
,
j
6. SUN Y
DING M , Regulatory Environmental Impact Assessment Is Better an Environmental Storm, Gr een Leaves, D .
, 8-9.
. C
E
I
A
L (
), E
b
://
.
.
/ /
/
8/ 3/
- .
(L
D
b 3 ,
8).
A
EIAL C
,
(EIS)
,
,
b
,
,
,
,
,
,
,
q
;
,
FYP
q
EIS
.
,
8. F
b b
j
,
C
O
z
N
://
.
. /z /z /
_1 3 61.
.
9. S N , China StateSafetyMonitor Administration isUpgraded to Improve itsImplementation Capacity,
://
.
.
. / /
5
/151 138 339.
(
D . 1,
8).
3 . I
5, 36 , 4
b
95.4%
;
1
, 93,1
b
96.5%
.D
b
://
.
. . / j /
-11/ /
_ 6 14.
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
2-2009
NEWS& ANALYSIS
.F
C
.Ib
,
,
SMR
,
(b
z
,
b
z
.C
.I
,C
O
L
.Y
-L
G
C
,
; (3)
.35 H
,
SEPA
,
,
;( )
SEPA
; (4)
E
SEPA
. SEPA
SEPA
z
,
b .D
.
.36
b
. I
P
-b
34
SEPA.
: (1)
;
(5)
L
-
L
P
P
C
,
b
.C
6, SEPA
S
,
A
,
.
.33 A
b
T
b SEPA
E b
. C
. F
R
.
SMR
,
-
,
.
.I
P b S
C
)
.3
C
b
-
MEP
.31
39 ELR10157
.F
,
:
31. S N , Former SEPA Vice Administor Believed that the Upgrade Would Improve SEPAs Capacity,
://
.
.
. / /
8- 3- 9/18 151 9 6.
(
D . 1,
8).
3 . ZHU G
JIA Y
, Super Ministry Framework Does NOT Solve All
Problems, 3 Ch ina Rep. 69- 1 (
8).
33. A
11
O
L
S
C
q
b
b
S
C
.
34. A
C
L
R b
C
,
.A
,
,
.F
C
O
z
N , Summary for 1982 Reform: Improve Government Efciency, and Employ Younger O cers,
://
.
. /z /z /
8- 3/11/
_519 3 .
(
D . 1,
8); Summary for 1988 Reform:
e Key Is to Transform Governmental Responsibilities,
://
.
. /
z /z /
8- 3/11/
_519 31.
(
D . 1,
8); Summary
for 1993 Reform: To Meet the Needs of Development Socialist Market Economic,
://
.
. /z /z /
8- 3/11/
_519 3 .
(
D . 1,
8); Summary for 1998 Reform: To Separate Government Functions
From Enterprise Functions of State-Owned Enterprises,
://
.
. /
z /z /
8- 3/11/
_519 34.
(
D . 1,
8); Summary
for 2003 Reform: To Regulate Behavior, to Coordinate Operation, to Achieve Justice, Transparency, Integrity, and E ciency,
://
.
. /z /z /
8-
D
V
A
P
.3 A
N
MEP
R
W
S
P A
F
,
-
,
.I
3/11/
_519 35.
(
D . 1,
8).
b
b
S
C
P b S
R
,
S
C
.
35. SEPA, Pl ans for Est a l ish ing SEPA Super vision Cent er (
6).
36. P . WANG C
E
S
RS
C
,
b
b
.M
b
J
N , Environmental Protection Supervision Center Cannot Enforce Law Without High-Pro le Delegation,
://
.j b.
/
6/
6 9349.
(
D . 1,
8).
3 . F
b
W
P
D
M
F
,
M
F
b ,
://
.
. . / b/F L .
? =j jj.1
(
D . 1,
8). F
b
N
R
P
D
MEP,
MEP
b
://
.
. . /
/j z / z /
3 1/
3 1 _84363.
(
D . 1,
8).
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
39 ELR10158
MEP,
R
: (1)
(4)
.
F
;( )
;
; (3)
q
2-2009
MEP
.4 S
,
j
,
,
.I
,
b
.F
, SEPA
.
P
,
E
b
C
b
.38 I
. D
,
,
,
,
,
,
,
,
.41
2. Environmental Planning
,C
,
. W
b
b
(1)
b
MEP
b
MEP
.A
SEPA
R
L
,
b
.
b
MEP
SEPA
b
b
.M
b
S N , MEP
Is Likely to Set Up an Environmental Monitoring Bureau,
://
.
.
.
/ /
8- 4- 1/
515394858.
(
D . 1,
8).
39. A
A
E
P
L 1989: [U]
b
b
. U
z
,
b
b
,
,
b
,
,
.
L ,
(1989).
M
.
R b
W
P
MEP
.
b
.4 H
R
b .43
b
.E
I
z
,
z
z
,
bj
q
I S
MEP
.O
38. S
.
A
:
W
( )
. H
.39
E
b
.
b
, SEPA
P
,
: (1)
z ; (3)
z ; (4)
z ; (5)
z ; (6) b
z ;
;( )
( )
4 . Id.
41. A P
P
C
L , .4(
); S
W
P
C
L , . 1 ( 4); W
P
P
C
L ,
. 4 (1996); N
P
C
L , . 6 (1996); R
M
P
P
C
L , .8(
3);
M
E
P
L , . 5 (1999).
4 . W
P
P
C
L , supra
41, . 1 ;
I
R
W
P
P
C
L , . (
).
43. W
L , .3 (
).
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
2-2009
z
NEWS& ANALYSIS
.O
R
z
11 z
b
L
j
-
: (1)
;
;( )
z .
z
z ;( )
; (4)
; (6) b
b
: (1)
; (3)
M
(4)
z
W
,
AQSIQ.
,
.46 A
b
z
z
; (5)
;
( )
MEP
MEP. A
,
O ,
z
z
z
b
R
b
.L
,
; (3)
z
T
W
F
39 ELR10159
z
z
z
.B
R
,
b
4. Environmental Monitoring
B
,
MEP,
b
.C
W
MEP
,
R
z
z
b -
b
b
.B
q
,
I
L
R
W
R
q
C
W
.
b
.A
,b
S
M
MEP
j
,
,
M
R
.
R
b
M
z
,
b
M
.F
.A
P
MEP,
: (1)
C
q
;
b
.H
A
Q
(5)
z
,I
S
S
Q
(AQSIQ )
z
,
-
,
;
b
.C
,
-
b
,
b
,
MEP;
AQSIQ.45
.
q
Ab
,
b
,
C
L
z
[]
C
S
.C
C
z
46.
MEP
MEP,
AQSIQ
.
,
. C
,
C
,b
,
G
MEP
,b
.S
,
z
.
AQSIQ
L ,
, C
: (1)
,
1983,
b
b
b ,
45.
,
F
b
,
.F
,
44. A
,
R
b
b
( )
.48 A
C
.44 C
; (3)
; (4)
-
; ( )
b
q
.4
-
L ,
AQSIQ,
4 . S
W
C
W
C
48. I
R
.H
b A
.
L , . 9 (1991); I
L , . 1 (1993).
F
L , .
(198 ).
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
39 ELR10160
2-2009
1989 E
SMR
P
C
, EPB
EPB
-
b
.
(1)
, ( )
.S
(3)
.O
b
,
SMR
;
EPB. H
.A
.
.
.
I 1994, C
.S
b
,
.51
b
,
-/
(EPB )
L ,
,
P
B
P
E
j
EPB ,
. C
j
/
EPB,
MEP. EPB
EPB,
q
b
b-
.
F
.5
P
M
,
EPB,
,G
z
H z D
P
. H
.5
C ,
EPB,
EPB
,
EPB
EPB
. I
.
B
EPB
P
A
1 (1999),
L , supra
P
b SEPA.
39,
E
. 9, 1 ,
,
.53
b
,
EPB
MEP
b
b b
.54
P
b
.55 H
1989,
q
,
q
. .
P
EPB
b
q
EPB
.
49. E
5 . R
b
SEPA
z
H z
b
MEP, PAN Y ,
j
I
G
G
V
: A
P
, EPB
EPB .
EPB
EPB,
,
49
51. S
C
, Decision on Separating Tax and Financial Management System (At
Local and Central Levels) (1994).
5 . XIN H
, Vertical Management: Contribution and Limitation, 14 New
West Ch ina
(
).
53. HE J R , Environmental Implementation Urges for Vertical Management, Legal Daily, S . 1,
.
54. Id.
55. See E
P
L , supra
39, . .
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
2-2009
NEWS& ANALYSIS
EPB
b
b .C
.I
.58
b
b
,
q
39 ELR10161
,
-
C
,
,
,
.
,
A
.
I
SMR
,
.59 B
C
b
,
b
z
,
.W
b
b
M
.
, SEPA
6,5
SMR
j
5,
8,
.H
,
b
,
,
b
.I
,
,
,
.
b
b
,b
.D
,
.6
SMR,
MEP
.W b
,C
,
,
.
b
: (1)
b
;( )
b
b
;
(3)
-
S
1
W
:
b
. F
C
,
,
L
-b
.
58. P
C
A
, b
b
,
56. R
P
A
V
E
P
( 6),
j
b
S
B
SEPA.
5 . See Pl ans for Est a l ish ing SEPA Super vision Cent er , supra
,
35.
. 3
. WANG C
: (1)
j
;( )
;
(3)
. See
WANG C
, On Limitation of Legislation on Environmental Administration
Mechanism of China, 4 Tr i . Pol . Sci. & L. (J. Ch ina Univ. Pol . Sci. & L.)
5 -58 (
3).
59. YING S
XUE G
, Administrative and Organic Law and Implementation of Administrative Authority Legally, 1 Admin. L. Rev. 1 - (1998).
6 . W b
:
(1)
z
;( )
; (3)
j
; (4)
; (5)
,
,
EPB ;
(6)
b
,
,
.
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
39 ELR10162
[T]
C
2-2009
S
[
MEP]
; (3)
AQSIS
,
b b
. W
?H
b
bj
,
b
b
b
.61
SMR
-
q
b
.A
,
,
b
.63
,
b
b ,
b-
bj
b
.I
,
b
.I
?W
,
AQSIQ.
?W
,
-
b
MEP
?W
D
b
,
C
. L
EPB , b
b
b
MEP. A
b
.
,
,
,
. I
b .
(4)
q
b
b
AQSIQ
.S
b
MEP,
b
j
MEP,
b
,
b
-
,
-b -
.64
.
U
b
EPB
.65 I
.
O
E
MEP
S
AQSIQ
1 C
M
: (1)
q
b
MEP,
AQSIQ,
b b
b
b
,
b
MEP.
j
,
MEP,
MEP
,
.F
b
. A
MEP,
;( )
,
b
b
,
AQSIQ,
-
AQSIQ
,b
63. TNAG Z , Legal Analysis and Construction of Democracy on the System of Administration Corresponding in China, 4 Ph il . & Soc. Sci. (Wuh an Univ. J.)
5 5- 8 (
).
64. ZHANG Z , Analysis on Dilemma of Environmental Litigation in China, 5
Law Discussion 138-143 ( 3); BAI P z , Di cult Position and Solution
for Construction of Legal System of Chinas Environment, 1 Soc. Sci. J. C. Sh anxi
51-53 (
); LI Z
CHEN S
, Present Situation of Environment
Administration Law Enforcement in China and Counter Measures, 1 J. Sci. &
Tech . Mgmt . Land & Resour ces 5- (
6).
65. I
C
.O
H
P
,
.
D
R
M
b
,
6. A
;
,
.
See X
N , In-Depth Investigation: e Whole Story of Zhengzhou Longzihu College Illegally Occupied Agricultural Land,
://
.
.
/
/
6- 9/3 /
_5155934.
(
D . 1,
8).
Copyright 2009 Environmental Law Institute, Washington, DC. reprinted with permission from ELR, http://www.eli.org, 1-800-433-5120.
2-2009
NEWS& ANALYSIS
b
.F
,
,
W b
b
.66
b
,
-
.C
.I
z
.6 S
b
.
b
.
V. Conclusion
E
SMR,
, SEPA
MEP,
b
A
MEP
z
.T
C
z
z
,
.M
b
.F
-
b
-b
,
b
.
b
66.
.F
SMR.
,C
-
.S
.
b
,
b .
L ,
b
.
b
E
b
P
q
q
j -
.B
b
b
b
q
.
E
P
L . See DU W
, inking on the Environmental Vertical Administration in
China, 3 Ch inese Pu . Admin. 99-1 (
6).
6 . ZHANG D q , Legal Regulation of Financial Transfer Payment Between the
Central and Local Governments, Moder n L. Sci. 56-68 (
)
39 ELR10163