我国农用地膜污染防治生产者责任延伸制的实践与展望

PRACTICE AND PROSPECTS OF THE EXTENDED PRODUCER RESPONSIBILITY SYSTEM FOR PREVENTION AND CONTROL OF AGRICULTURAL PLASTIC FILM POLLUTION IN CHINA

关键词:  农用地膜污染防治  生产者责任延伸制  市场场域  制度嵌入  影响机制

Key words:  agricultural plastic film pollution prevention and control  extended producer responsibility system  market  institutional embeddedness  impact mechanism

摘要:

目的 在农村人居环境整治和乡村生态振兴背景下，农用地膜污染治理已成为关注重点之一。系统研究如何将生产者责任延伸制引入农用地膜污染治理过程，实现“谁污染，谁付费”的农用地膜产品生命周期闭环，可为全国农用地膜污染高效治理提供可借鉴的方式和经验。方法 文章在系统梳理农用地膜治理政策基础上，结合案例分析系统研究了农用地膜回收生产者责任延伸制建立、运行、发展的途径和规律，提出地膜污染治理过程中生产者责任延伸制市场化模式的影响机制。结果 市场化模式制度嵌入的失效，是农用地膜残留污染治理问题的主要症结，生产者责任延伸制重新建立了地膜残留污染治理责任的分摊机制，是更为可靠的市场化模式，但其构建也陷入“市场化模式实现条件的苛刻性”和“企业垄断的必然性与市场配给的竞争性之间的矛盾”双重困境；此外，从具体原因来看，制度嵌入影响机制还包括政府投入机制建立、企业责任落实与利益诉求的平衡，以及农户价值诉求识别偏差等方面。结论 因此，政府应在推动和维护机制建立运行过程中，完善制度保障，考虑企业利益导向，帮助农户识别价值诉求，推进生产者责任延伸制跳出困境，有效融入农用地膜市场场域，引导构建市场化模式。

Abstract:

The control of agricultural film pollution has emerged as a key concern in rural habitat improvement and rural ecological revitalization. A systematic study on the introduction of the Extended Producer Responsibility System ("EPR System") for controlling agricultural film pollution—to establish a closed-loop lifecycle management system for agricultural film products in line with the "Polluter-Pays Principle (PPP)"—can provide a model for the efficient control of agricultural film pollution in our country. Based on a systematic review of policies dealing with the control of agricultural film pollution, we systematically investigated the laws regulating the establishment, operation, and development of the EPR System for agricultural film recycling—and associated strategies—and proposed a mechanism for embedding the EPR System in a market-based model to control land film pollution (and the associated impact). The results were listed as follows. The failure to embed the EPR System in a market-based model was a major problem with respect to controlling agricultural film residue pollution. The EPR System—which re-established a mechanism for apportioning the responsibility for controlling film residue pollution—represented a more reliable market-based model; however, its establishment was associated with the dual dilemma, i.e., "the harshness of the conditions for the market-based model" and "the contradiction between the inevitable corporate monopoly and competitive market rationing". In addition, embedding the EPR System in the impact mechanism required the following works: establishment of a government input mechanism; balance between enterprise responsibility implementation and interest claims; and identification of bias in farmers' value claims. Thus, to facilitate and maintain the establishment and operation of the mechanism, the government should do the following aspects: improving institutional safeguards; taking into account the interest of enterprises and helping farmers identify value claims in order to propel the EPR System out of the dilemma, then effectively integrating the system into the agricultural film market and guiding the establishment of a market-oriented model.