EU-China
Environmental Governance Programme
1st EGP Training Course
Policy for Access to Environmental Information & Public Consultation in
Environmental Decision
Central Garden Hotel, Beijing
17 & 18 September 2012
Overview and Case Studies of
practical environmental
monitoring and public reporting in
the EU and EU Member States
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中欧环境治理项目
第一次培训研讨会
环境信息公开与公众参与培训研讨会
北京，中苑宾馆
2012年九月17日—18日
简介与案例分析：欧盟及欧盟成员国
环境监测与公开上报经验
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Historical Basis
• Pollution levels in European cities in 18th and 19th
century were over a 100 times of current limit
values, e.g. famous London smog.
• 20th Century led to development of large
centralised power plants with tall stacks,
‘dilution was the solution’.
• This led to transboundary pollution, acidification
and dying forests.
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历史背景
• 18世纪19世纪，欧洲城市污染级别比现代最高排
放限定值高出100倍。例如，著名的伦敦雾都。
• 20世纪，发展起大型集中式发电厂，配以大型烟囱。
采取“稀释污染”的解决方案。
• 这造成了跨国界污染，酸化和森林退化。
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Recent Basis
• 1983 Germany
implemented Federal
Imissions Control Act
(BImSchG), leads in
ten years to a 89%
reduction of SO2,
driven by high
awareness of
environmental
damage to forests.
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近代发展
• 1983年德国颁布了联
邦污染物浓度控制法令，
10年来，提高了人们保
护森林的意识，减少了
89%的二氧化硫排放量。
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Estimated Source of Air Releases
(as % of Total UK Emissions)
Pollutant
Source
Industry Transport
Sulphur Dioxide (SO2)
89%
2%
Nitrogen Oxides (NOx)
37%
46%
Carbon Monoxide
12%
75%
Fine Particulates (PM10s) 59%
26%
Lead
18%
78%
Benzene
20%
67%
1,3-Butadiene
13%
77%
Volatile Organic Compounds53%
29%
Other
9%
17%
13%
15%
4%
13%
10%
18%
Source: National Air Quality Strategy, DETR
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大气污染物排放源统计
（占英国总排放量的百分比）
污染物
二氧化硫 (SO2)
氮氧化物 (NOx)
一氧化碳
可吸入颗粒物 (PM10s)
铅
苯
1,3-丁二烯
挥发性有机化合物
工业
89%
37%
12%
59%
18%
20%
13%
53%
污染源
交通
2%
46%
75%
26%
78%
67%
77%
29%
其它
9%
17%
13%
15%
4%
13%
10%
18%
来源：国家空气质量战略，DETR
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Community Air Policy
Immissions
Emissions
Framework
Directive
1St Daughter
2nd Daughter
National
emissions
ceilings
Stationary
sources
Mobile
Sources
3rd Daughter
IPPC
LCP’s
Incineration
VOC’s
4th Daughter
Exchange
1st
EGP Training Course
Information
17-18 / 09/ 2012
CAFE Directive &
Programme
Non-road
Fuels Quality
Road
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空气质量系列政策
污染物浓度
污染物排放
空气质量
框架指令
第一代指令
国家排放
第二代指令
静止污染源
移动污染源
最高标准
第三代指令
污染防治
第四代指令
信息交换
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及监控指令
大型焚烧
站指令
平均燃料经济性指令及
项目
焚化物
非公路
挥发性有
机化合物
燃料质量
公路
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Summary of targets:
2008 air quality directive
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空气质量合格标准:
2008 空气质量指令
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01/01/16
01/07/15
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mg/m
Example: progress
in NO2 limit value
40
42
2010
20
13
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mg/m
示例：二氧化碳排放量
限定值标准变化
40
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2010
20
14
DIRECTIVE 2008/50/EC
(New Air Quality Directive) of 21 May 2008
Main Contents:
• most of existing legislation is merged into a single
directive (except for the fourth daughter directive)
• New air quality objectives for PM2.5 (fine particles)
• possibility for time extensions of three years (PM10) or
up to five years (NO2, benzene)
• possibility to discount natural sources of pollution and
resuspension attributable to winter sanding-salting of
roads when assessing compliance against limit values
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指令2008/50/EC
(新空气质量指令) 2008年5月21日
主要内容：
• 大多数现行法律均被纳入本次新指令 （第四代指令除外）
• 纳入新空气质量评估指标：PM2.5（可入肺颗粒物）
• 分别延长测量时间至三年（可吸入颗粒物）、五年（二
氧化氮、苯）
• 降低自然污染源及冬季化冰路段沙盐污染源对评估空气
质量造成的影响
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New Air Quality Directive:
how does it work?
Assessment (monitoring, modeling, estimate) throughout the territory
Minimum requirements on the number of stations
Inform public, Commission & Member States
Develop air quality plan where necessary
good understanding of situation and abatement measures
Implementation
Planning and fast timing essential: some measures take several years to be
implemented
Legal sanctions after limits in force
Commission vs. Member State before European Court of Justice
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新空气质量指令：
如何运行？
评估 （监控，建模，评估)）全部领土范围内
设置站点最低数量要求
告知公众，欧盟委员会及欧盟成员国
必要时制定空气质量规划
了解情况及改善措施
实施
保证必要的规划、充足的时间：有些措施需要几年准备时间才能正式落实
超标强制法律约束力
欧盟委员会和欧盟成员国司法权
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Example 1 (NL): Zones
‘zone’ shall mean part of the
territory of a Member State, as
delimited by that Member State for
the purposes of air quality
assessment and management;
‘agglomeration’ shall mean a zone
that is a conurbation with
a population in excess of 250 000
inhabitants
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案例一 （荷兰）: 地带
“地带”指由该欧盟成员国在其领
土内划定的部分区域，用于空气质
量评估及管理；
“集聚”指超过250000人口聚集的
集合城市地带
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Assessment Criteria
•
Member States shall assess ambient air quality with respect to the
pollutants in all their zones and agglomerations
•
In all zones and agglomerations where the level of pollutants referred to in
exceeds the upper assessment threshold established for those pollutants,
fixed measurements shall be used to assess the ambient air quality. Fixed
measurements may be supplemented by modelling and/or indicative
measurements to provide adequate information on the spatial distribution of
the ambient air quality.
•
In all zones and agglomerations where the level of pollutants referred to in
is below the upper assessment threshold established for those pollutants, a
combination of fixed measurements and modelling techniques and/or
indicative measurements may be used to assess the ambient air quality.
•
In all zones and agglomerations where the level of pollutants is below the
lower assessment threshold, modelling techniques or objective-estimation
techniques or both shall be sufficient for the assessment of the ambient air
quality.
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评估标准
•
欧盟成员国需评估其所有地带及集聚区的空气质量
•
在接受评估的地带及集聚区内，若污染物排放量超过对其所设上限，必须采
取固定方式评估空气质量。可配以建模或指标措施辅助固定评估方式，以获
得足够信息评估区域内空气质量。
•
在接受评估的地带及集聚区内，若污染物排放量未超过对其所设上限，可采
用固定方式与建模或指标措施相结合的方式，评估区域内空气质量。
•
在接受评估的地带及集聚区内，若污染物排放量尚未达到对其所设下限，可
采取建模或标准评测的方式，或将两种方式结合，以评估区域内空气质量。
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Information Dissemination
• Member States shall ensure that the public as well as appropriate
organisations such as environmental organisations and other
organisation are informed, adequately and in good time, of the
following:
• (a) ambient air quality in accordance with Annex XVI;
• (b) any postponement decisions pursuant to Article 22(1);
• (c) any exemptions pursuant to Article 22(2);
• (d) air quality plans as provided for in Article 22(1) and Article 23
and programmes referred to in Article 17(2).
• The information shall be made available free of charge by means of
any easily accessible (e.g. newspaper, teletext, internet)
• Member States shall make available to the public annual reports for
all pollutants covered by the New Air Quality Directive
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信息公开
• 各成员国需确保公众及相关组织（如环境组织等）及时、充分地了解
以下信息：
• (a) 符合附件14规定的空气质量情况
• (b) 任何由第22条（1）产生的决策推迟
• (c) 任何由第22条（2）产生的免除
• (d) 根据第22条（1）和第23条制定的空气质量规划及根据第17条（2）
指定的相关项目
• 以上信息应免费向公众公开，并确保其通过最便利的途径传播（如，
报纸，文字电视广播，网络等）
• 各成员国均可获取符合新空气质量指令规定的全部公共污染物排放情
况年度报告
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Example: Air quality plans
Integrated Monitoring and Assessment in
Urban Air Quality Management in Copenhagen,
Denmark
Integrated Monitoring and Assessment (IMA): combined
use of measurements and model calculations
IMA is a guiding principle for assessment of air quality
and deposition in Denmark within different areas
The city of Copenhagen has about 600,000 inhabitants
and the Greater Copenhagen Area has about 1.8 million
inhabitants.
The National Environmental Research Institute (NERI)
operates the Danish Urban Air Quality Monitoring
Programme …
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案例：空气质量规划
哥本哈根，丹麦——城市空气质量综合监
控评估管理
综合监控评估方法：通过综合使用各种手
段，及建模计算开展。综合监控评估方法
是丹麦各区进行空气质量评估及空气成分
分析的指导原则。哥本哈根有约600000常
住人口 ， 丹麦 国家环境研 究 所负责开展
“丹麦城市空气质量监控项目”……
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Formal Reporting
• Member States shall ensure that information on ambient air quality
is made available to the Commission within the required timescale
as determined by the implementing measures referred to in Article
28(2).
• information shall be made available to the Commission no later than
nine months after the end of each year and shall include:
• a) the list and delimitation of zones and agglomerations established
• b) the list of zones and agglomerations in which the levels of one or
more pollutants are higher than the limit values plus the margin of
tolerance where applicable or higher than target values or critical
levels;
• Ad Hoc questionnaire are provided to report this kind of information
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正式上报
• 欧盟各成员国需确保其空气质量信息应在第28条（2）所规定的时限
内及时上报给欧盟委员会。
• 相关信息应在上一年年终九个月之内上报给欧盟委员会，其内容应包
括：
• a) 空气质量监测地带及集聚区列表及其范围
• b) 有一项或多项污染物含量高于限定值的地带及集聚区列表，含其实
现更高目标值或不高于限定值的预留空间
• 上报上述类别信息时需提供点对点调查问卷
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Air Quality Plans
• Where, in given zones or agglomerations, the levels of pollutants in
ambient air exceed any limit value or target value, plus any relevant
margin of tolerance in each case, Member States shall ensure that
air quality plans are established for those zones and agglomerations
in order to achieve the related limit value or target value.
• In the event of exceedances of those limit values for which the
attainment deadline is already expired, the air quality plans shall set
out appropriate measures, so that the exceedance period can be
kept as short as possible.
• Air quality plan shall be communicated to the Commission without
delay, but no later than two years after the end of the year the first
exceedance was observed.
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空气质量规划
• 当监测地带或集聚区内空气污染物级别超过限定值或目标值时（含预
留空间），各欧盟成员国必须在这些地区实施空气质量规划，以将污
染物排放控制在限定值之内，或实现目标值。
• 污染物在规定时限内超过限定值的情况，空气质量规划应制定相应措
施，以尽量缩短污染物超标时长。
• 需及时和欧盟委员会沟通空气质量规划，不得晚于第一次发现超标后
两年之内。
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How to implement plans?
e.g. Emissions limits from vehicles
Following the CAFE programme the Thematic Strategy on air pollution
promoted new Euro 5 and Euro 6 standards and stricter standard for heavy
duty vehicles
Regulation (EC) No 715/2007 of the European Parliament and of the
Council of 20 June 2007 (Euro 5 and Euro 6)
Proposal for a Regulation of the European Parliament and of the Council
on type-approval of motor vehicles and engines with respect to emissions
from heavy duty vehicles (Euro VI) and on access to vehicle repair and
maintenance information 2007/0295 (COD) 21.12.2007
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如何实施规划？
案例：机动车污染物限排
根据平均燃料经济性项目，空气污染系统战略组推行了欧盟5号、欧盟六号
标准及更严格的标准，限制大型载货汽车。
欧盟委员会第715/2007号法规，欧盟议会及委员会2007年6月20日通过（即
欧盟5号、欧盟6号）
欧盟议会及委员会就（1）机动车及大型载货机车排量限制（欧盟六号）（2
）机动车维护及保养信息2007/0295 (COD) 两方面提出立法建议
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Public Information
• AirBase is the public air quality database
system of the European Environment
Agency (EEA) and is publicly available
• AirBase contains air quality monitoring
data and information submitted by the
participating countries throughout Europe.
• Available for all member states
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信息公开
• 空气质量数据库是欧盟环境机构面向公众
公开的数据库系统
• 空气质量数据库内含空气质量检测数据、
及欧盟成员国上报的所有空气质量信息。
• 向全部欧盟成员国公开
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PM10, Public Info
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可吸入颗粒物, 公众信息
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Example Bremen
• Low Emission Zones are
established
-> cars fulfilling certain
exhaust criteria can enter the
city only
-> strict regulations on the use of machines and
heating systems (small fire places)
-> data is provided on hourly basis in teletext,
measured by 27 stations
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案例： 布莱梅
• 建立低排放区域
-> 符合一定排放标准的车辆才
能准入该区域
-> 制定严格法规，规范机器及供暖系统的使用
（小型壁炉）
-> 文字广播电视每小时更新数据，数据由27家监
测站提供
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Bremen cont.
• Each Low Emission Zone must be
published in English for drivers from other
Member States
• These zones are established based on the
ordinance on the marking of vehicles (35th
BImSchV) -> immission targets from the
Air Quality Directive are implemented
using existing sectoral laws and
regulations
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案例：布莱梅
• 每个低排放区域必须设置英文标示，以明
示其他成员国司机
• 这些区域得以成立的前提是“汽车标记法
令”（ 35th BImSchV ）-> 根据空气质量
指令制定污染物浓度目标，按现行区域法
律法规实施
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Bremen Low Em. Zone
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布莱梅低排放区域
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Summary
• The Air Quality Directive is a framework law that is filled
up with sectoral strategies and targets
• The old approach was setting the threshold for each
source of pollution
• The new approach considers the effects of all pollution
sources, e.g. the immissions to which citizens are
exposed to
• Citizens must be informed if thresholds are exceeded
(active provision of data)
• Citizens have the right to be involved in setting local
strategies
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总结
• 空气质量指令作为框架法令，由地区战略及目标构成
• 旧措施为设定各项污染源的下限
• 新措施将各项污染源的影响纳入评价体系，如公众直接感
受到的污染物浓度监测
• 如果污染超标，公众将收到通知 (主动提供数据)
• 公众有权参与拟定地区空气质量发展战略
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Thanks for Attention
Questions?
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45
谢谢！
欢迎提问！
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