1、International Experience in Contaminated Industrial Site Management International Experience in Contaminated Industrial Site Management 城市工业污染土地环境修复与再开发城市工业污染土地环境修复与再开发 国际经验国际经验龚宇阳 伊世特(ESD)中国有限公司董事总经理/博士2011 Beijing2011 Beijing2023-1-91第一部分：污染场地需解决的关键问题第一部分：污染场地需解决的关键问题第二部分：美国的经验和教训第二部分：美国的经验和教训从超级基
2、金到棕色地块从超级基金到棕色地块 第三部分：其它国家的经验第三部分：其它国家的经验加拿大加拿大欧盟欧盟(英国英国,荷兰荷兰)日本和台湾地区日本和台湾地区第四部分：总结和几点建议第四部分：总结和几点建议2023-1-923445Polluted Land and WaterPolluted Land and Water企业搬迁后遗留的土壤和地下水污染问题企业搬迁后遗留的土壤和地下水污染问题某化工厂原址被污染的地下水某化工厂原址被污染的地下水某化工厂搬迁后污染土壤的现状某化工厂搬迁后污染土壤的现状某化工厂原址含持久性有机某化工厂原址含持久性有机污染物的遗留工业固废堆放点污染物的遗留工业固废堆放点5
3、黄金宝地是黄金宝地是“毒地毒地”武汉国土局倒赔武汉国土局倒赔1.21.2亿亿2006年3月，由武汉三江地产公司竞得后，迄今已整整荒芜了荒芜了5 5年年 从“春江花月春江花月”到“.野生杂草而显得荒凉破败，与周边的车水马龙极不相称”2023-1-96US 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
4、a hazardous substance,pollutant,or contaminant.棕色地块：因污染问题影响到开发和利用的棕色地块：因污染问题影响到开发和利用的(城市城市)场地场地Contaminated Land vs.Brownfield污染场地和棕色地块污染场地和棕色地块7场地名称:北京红狮涂料公司北京红狮涂料公司污染物:DDT;六六六六六六污染土方量：140,000 m3 修复工艺:异位焚烧 Transportation Digging Sieving Contaminated Soil General material 8重庆天原化工厂治理案例场地名称:重庆天原化工厂污染物
5、:二噁英；DDT，六六六；四氯乙烯;四氯化碳 污染土方量：50,000 m3 修复工艺:异位焚烧(cement plant)9现场清除污染土密闭运输至处置地点密闭贮存水泥窑焚烧处置时间限制时间限制异位修复异位修复10场地名称:北京焦化厂污染物:苯系物和半挥发性有机物(PAHs)污染土方量：up to 1,000,000 m3 修复工艺:异位+原位；多种技术11 China BrownfieldChina Brownfields sRedevelopmentRedevelopmentProcessProcess中国棕色地块中国棕色地块治理程序治理程序follows US EPA/ASTM一期初勘
6、一期初勘二期取样评估二期取样评估三期风险评估三期风险评估工程修复方案工程修复方案工程修复工程修复12污染者付费：原则和应污染者付费：原则和应用用（不必要的纠纷）（不必要的纠纷）技术和市场：成本和适技术和市场：成本和适用性用性（科技创新）（科技创新）管理程序：效率管理程序：效率（优化）（优化）和和执法执法（优先）（优先）发展和发展和（环境健康）（环境健康）保护：保护：土地用途修复标准土地用途修复标准资金资金&融资（美国立法融资（美国立法优点）优点）13一期初勘一期初勘二期取样评估二期取样评估三期风险评估三期风险评估工程修复方案工程修复方案工程修复工程修复示范城市示范城市(重庆重庆)VS 多数城市
7、14国有企业国有企业历史悠久历史悠久污染严重污染严重合资经营合资经营(责任划分责任划分)中外合资中外合资 进入和退出进入和退出国内合资国内合资-”-”零零”尽职尽职民营企业民营企业(支付能力支付能力)集体企业集体企业(支付能力支付能力)银行银行/投资者投资者/潜在责任人潜在责任人(公平公平)?)?15工业场地工业场地(目前关注的焦点目前关注的焦点)填埋场填埋场（责任者众多）（责任者众多）污水库排污沟污水库排污沟（责任者众多）（责任者众多）矿山矿山（乡企）（乡企）回收利用拆检场回收利用拆检场责任者众多责任者众多16可接受的风险？可接受的风险？当前当前1010-6-6 (政策问题）政策问题）社会经
8、济效益社会经济效益社会公平社会公平技术局限技术局限（TI;DLTI;DL）市场承受能力市场承受能力1010-4-4 Dutch interference;Sweden and German(10Dutch interference;Sweden and German(10-5-5)标准决定费用和技术适用性标准决定费用和技术适用性17AsBeCdCrCuPbHgNiZnSnSbCNF10-210-1100101102103104105 _ 指导值 荷兰 新泽西 马里兰 佛罗里达居住用地无机物质指导值无机污染物6+_多氯联苯六六六六六六六六六林丹4,4-DDT4,4-DDE4,4-DDD狄氏剂艾
9、氏剂异狄氏剂乐果敌百 虫总 石油烃(GRO)总 石油烃(DRO)-10-210-1100101102103 指导值 新泽西 马里兰 佛罗里达居住用地（农药/PCB等）指导值二氯甲 烷苯甲 苯乙苯氯仿氯苯四氯化碳1,1-二氯乙烷1,2-二氯乙烷1,1,1-三氯乙烷1,1,2-三氯乙烷1,1,2,2-四氯乙烷三氯乙烯四氯乙烯苯 乙烯二甲 苯氯乙烯氯甲 烷1,2-二氯乙烯(顺)1,2-二氯乙烯(反)1,1-二氯乙烯1,2-二氯丙 烷1,1,2-三氯乙烷1,2,3-三氯丙 烷-10-310-210-1100101102103104105 指导值 荷兰 新西兰 马里兰 佛罗里达居住用地(VOCs)指导值
10、1,2-二氯苯 1,3-二氯苯1,4-二氯苯1,2,4-三氯苯六氯苯苯 胺硝基苯苯 酚2,4-二硝基甲 苯邻苯 二甲 酸二丁酯邻苯 二甲 酸二辛酯邻苯 二甲 酸正辛酯萘菲蒽荧蒽芘屈芴苯 并b荧蒽苯 并k荧蒽苯 并a芘茚并1，2，3-cd芘苯 并(g,h,i)芘苯 并（a）蒽二苯 并（a,h）蒽2-氯酚2,4-二氯酚2,4-二硝基酚2-硝基酚4-硝基酚五氯酚2,4,5-三氯酚2,4,6-三氯苯 酚 2,4,6-对甲 酚（4-甲 酚）三溴甲 烷1,2-二溴乙烷二溴氯甲 烷一溴二氯甲 烷10-210-1100101102103104105 指导值 荷兰 新泽西 马里兰 佛罗里达住宅用地（SVOC）指
11、导值Inorganic PollutantsPOPsVOCsSVOCs 场地修复标准值（风险系数为场地修复标准值（风险系数为1010-6-6）与国外标准值的比较度（）与国外标准值的比较度（mg/mg/kgkg）18现场清除污染土密闭运输至处置地点密闭贮存水泥窑焚烧处置时间限制时间限制异位修复异位修复19Figure 2-4 USAUSA Source Control Treatment Projects 1982-2005-Total of 977 projectsOther Ex Situ(43)Other Ex Situ(43)Chemical Treatment-9Neutralizat
12、ion-7Soil Vapor Extraction-7Soil Washing-6Mechanical Soil Aeration-4Open Burn/Open Detonation-4Solvent Extraction-4Phytoremediation-1Vitrification-1Other In Situ(20)Other In Situ(20)Neutralization-8Phytoremediation-6Mechanical Soil Aeration-3 Vitrification-2Electrical Separation-1Ex Situ Technologie
13、s(515)53%Ex Situ Technologies(515)53%In Situ Technologies(462)47%In Situ Technologies(462)47%异位异位5353原位原位474720Figure 2-4 USAUSA Source Control Treatment Projects 2002-2005-Total of 126Other Ex Situ(8)Other Ex Situ(8)Incineration(off-site)-3Open Burn/Open Detonation-3Chemical Treatment-1Neutralizati
14、on-1Other In Situ(6)Other In Situ(6)Mechanical Soil Aeration-2Phytoremediation-2Flushing-1Neutralization-1Ex Situ Technologies(50)40%Ex Situ Technologies(50)40%In Situ Technologies(76)60%In Situ Technologies(76)60%原位原位6060异位异位404021中国污染场地治理市场市场“失常失常”22(单一单一,昂贵昂贵)异位修复异位修复时间限制？时间限制？土地价格和资金周转压力土地价格和资金周
15、转压力商业商业/公益用地公益用地(规划问题）规划问题）修复社会经济效益修复社会经济效益(政策问题）政策问题）土地用途土地用途商业商业VSVS居民区居民区公园公园/工业遗址工业遗址/高尔夫高尔夫市场成熟度市场成熟度(竟争竟争+技术创新技术创新)土地用途决定修复时间和技术土地用途决定修复时间和技术开发时间第一要素开发时间第一要素23立法立法(依据依据)技术规范技术规范(效率效率)管理机构管理机构(执行力执行力)奖惩制度奖惩制度(动力动力)执法执法(推动力推动力)24管理风险管理风险VSVS消除污染？消除污染？土地用途风险土地用途风险/标准标准拆迁二次污染防护拆迁二次污染防护修复本身修复本身EMP/
16、EHSEMP/EHS资源利用资源利用（土壤地下水）（土壤地下水）绿色修复绿色修复（生态，节能减排）（生态，节能减排）25第二部分第二部分:美国的经验和教训美国的经验和教训从超级基金到棕色地块从超级基金到棕色地块26FROM SUPERFUND TO BROWNFIELDS FROM SUPERFUND TO BROWNFIELDS LESSONS&EXPERIENCELESSONS&EXPERIENCE从超级基金到棕色地块从超级基金到棕色地块-对中国污染场地修复的启示对中国污染场地修复的启示ESD ChinaESD China2023-1-927Disasters,Public,Media,P
17、olitics&LawDisasters,Public,Media,Politics&Law 环境灾难环境灾难-公众公众-媒体媒体-政客政客-法律法律n1967 Torrey Canyon,England NCP 1967年英国托利峡谷号石油泄漏事件全国应急计划n1978-80 Love Canal 1980Superfund1978-80年拉弗运河事件19801980超级基金法案超级基金法案n1984 Bhopal India EPCRA/SARA 1984年印度博帕尔泄漏事件社区知情权社区知情权/超级基金再授权n1989 Exxon Valdez OPA1989年埃克森石油泄漏事件石油污染
18、法案n2001 9/11 Terror Attack HSA 2001年9.11恐怖袭击国土安全法案历史从来是惊人的相似历史从来是惊人的相似28Love Canal Love Canal 拉弗运河事件拉弗运河事件During the summer of 1978,During the summer of 1978,United States President Jimmy Carter United States President Jimmy Carter declared a federal emergency declared a federal emergency at the Lov
19、e Canal,at the Love Canal,a former chemical landfill a former chemical landfill which became a 15-acre neighborhood which became a 15-acre neighborhood of the City of Niagara Falls,New York.of the City of Niagara Falls,New York.29Love Canal Love Canal 拉弗运河事件拉弗运河事件301980 Elizabeth NJ1980 Elizabeth NJ
20、Toxic Waste ExplosionToxic Waste Explosion伊丽莎白伊丽莎白19801980危废大火危废大火 April 21,1980:Chemical Control Corporation massive chemical April 21,1980:Chemical Control Corporation massive chemical explosion in New Jersey,that prompted the Superfund Act and cexplosion in New Jersey,that prompted the Superfund
21、Act and changed standards for the handling of industrial waste in Americahanged standards for the handling of industrial waste in America31立法阶段（立法阶段（1976-19801976-1980）探索探索（摸石头过河）（摸石头过河）年代（年代（1980-19891980-1989）改革和创新时期（改革和创新时期（1989-1995)1989-1995)萧条萧条(反思反思)时代时代(1995-2000)(1995-2000)再开发（棕色地块）（再开发（棕色地
22、块）（2001/2002-)2001/2002-)32Resource Conservation and Recovery Act(RCRA)enactedResource Conservation and Recovery Act(RCRA)enacted The Toxic Substances Control Act(TSCA)The Toxic Substances Control Act(TSCA)A series of chemical reactions ignite a large chemical-wastA series of chemical reactions igni
23、te a large chemical-waste treatment facility in Bridgeport,New Jerseye treatment facility in Bridgeport,New JerseyState of Emergency declared at Love Canal,New YorkState of Emergency declared at Love Canal,New York197619767777787879798080818182828383House and Senate hold hearings on toxic waste dump
24、 danHouse and Senate hold hearings on toxic waste dump dangersgersA toxic waste fire burns for 10 hours in Elizabeth,New JersA toxic waste fire burns for 10 hours in Elizabeth,New JerseyeyComprehensive Environmental Response,Compensation,aComprehensive Environmental Response,Compensation,and Liabili
25、ty Act(CERCLA or Superfund)enactednd Liability Act(CERCLA or Superfund)enactedSuperfund successfully responds to the Superfund successfully responds to the“Valley oValley of the Drumsf the Drums”site in Kentucky site in KentuckyEPA published the Hazard Ranking System(HRS)EPA published the Hazard Ran
26、king System(HRS)First multi-generator settlement reached where the parties First multi-generator settlement reached where the parties implemented cleanupimplemented cleanupRevised National Oil and Hazardous Substances Pollution Revised National Oil and Hazardous Substances Pollution Contingency Plan
27、 provides first national guidelines for implContingency Plan provides first national guidelines for implementing CERCLAementing CERCLABirth of environmental justice movementBirth of environmental justice movementEPA issues the first National Priorities List(NPL)EPA issues the first National Prioriti
28、es List(NPL)More than 500 residents of Times Beach,Missouri are relocaMore than 500 residents of Times Beach,Missouri are relocatedted拉弗运河事件拉弗运河事件伊丽莎白大火伊丽莎白大火超级基金法超级基金法国家应急响应计国家应急响应计划修改划修改3384848686878788888989909091918585Congress passes the Hazardous and Solid Waste AmendmeCongress passes the Hazar
29、dous and Solid Waste AmendmentsntsEPA initiates EPA initiates“Enforcement FirstEnforcement First”policy policyOil Pollution Act enactedOil Pollution Act enactedDefense Base Closure and Realignment Act enactedDefense Base Closure and Realignment Act enactedEPA revises the Hazard Ranking SystemEPA rev
30、ises the Hazard Ranking SystemEPA expands the National Oil and Hazardous SubstanEPA expands the National Oil and Hazardous Substances Pollution Contingency Plances Pollution Contingency PlanCongress passes the Pollution Prevention ActCongress passes the Pollution Prevention ActToxic gas release in B
31、hopal,India kills 3,800Toxic gas release in Bhopal,India kills 3,800First Site is deleted from the NPLFirst Site is deleted from the NPLCongress passes the superfund Amendments and ReauthorizCongress passes the superfund Amendments and Reauthorization Actation ActFirst emergency planning and communi
32、ty right-to-know lawFirst emergency planning and community right-to-know law“90-Day Study90-Day Study”Management Review of the Superfund Pr Management Review of the Superfund ProgramogramExxon Valdez spills 11 million gallons of crude oilExxon Valdez spills 11 million gallons of crude oil印度博帕尔毒气印度博帕
33、尔毒气泄漏事件泄漏事件超级基金授权法超级基金授权法案（社区知情权）案（社区知情权）9090天基金法管理天基金法管理改革研究改革研究埃克森石油泄漏埃克森石油泄漏石油污染法石油污染法349292949495959696979798989393“30-Day Study30-Day Study”on Superfund improvements is compl on Superfund improvements is completedetedSuperfund Accelerated Cleanup Model(SACM)streamlinSuperfund Accelerated Cleanu
34、p Model(SACM)streamlines the traditional Superfund response processes the traditional Superfund response processConstruction Completions established to more accurately Construction Completions established to more accurately reflect the work accomplished on Superfund sitesreflect the work accomplishe
35、d on Superfund sitesBrown fields Initiative launchedBrown fields Initiative launchedFirst Round of Administrative ReformsFirst Round of Administrative ReformsOSWER Environmental Justice Task Force is createdOSWER Environmental Justice Task Force is createdSecond and Third Rounds of Administrative Re
36、formsSecond and Third Rounds of Administrative ReformsEPA introduces the Brownfields Action AgendaEPA introduces the Brownfields Action AgendaSuperfundSuperfunds emergency response program expands s emergency response program expands to address terrorist actsto address terrorist acts$2billion in Sup
37、erfund cost recovery settlements reached$2billion in Superfund cost recovery settlements reachedRe-authorization failed(No more tax revenue)Re-authorization failed(No more tax revenue)Brown fields National Partnership launchedBrown fields National Partnership launched3030天超级基金改天超级基金改进研究进研究超级基金加速修超级基
38、金加速修复模型复模型棕色地块开发倡棕色地块开发倡议议第一轮改革第一轮改革第二轮和第三轮第二轮和第三轮改革改革超级基金再授权超级基金再授权失败失败359999200020005,000th emergency removal action5,000th emergency removal actionSuperfund Redevelopment Initiative announSuperfund Redevelopment Initiative announcedcedBrown fields Initiative wins HarvardBrown fields Initiative wi
39、ns Harvards Inns Innovations in Government Awardovations in Government Award700th Construction Completion700th Construction Completion20th Anniversary of Superfund20th Anniversary of Superfund010136B U S H A D M I N I S T R A T I O N P E R I O D020204040505060607070808030320092009Brown fields Act;Am
40、endments to CERCLABrown fields Act;Amendments to CERCLAO B A M A Focus or relief or liability(small and innocent owners)Focus or relief or liability(small and innocent owners)Allocate fund(200millionyear)Allocate fund(200millionyear)Redevelopment of site(inner cities)Redevelopment of site(inner citi
41、es)Efficiency and Effective managementEfficiency and Effective management Funding Funding EPAEPA Explicit look into land useExplicit look into land use Long term management of superfund Long term management of superfund21st Century Principle for Superfund21st Century Principle for SuperfundEPA Super
42、fund Action PlanEPA Superfund Action Planresponding 2003 120 Day recommendationresponding 2003 120 Day recommendationRecovery Act(Stimulation Package)Recovery Act(Stimulation Package)600 million(50 NPL site)600 million(50 NPL site)LimitLimit3%for management and oversight3%for management and oversigh
43、t Quick SpendingQuick Spending “120 Day Study120 Day Study”棕色地块超级基棕色地块超级基金修正法案金修正法案2121世纪超级基金世纪超级基金原则原则37第一轮变革（第一轮变革（1989-19931989-1993）9090天天(1989)+30(1989)+30天天(1991)(1991)研究研究 (宏观战略：宏观战略：“Enforcement first”Enforcement first”执执法第一法第一and“worst site firstand“worst site first优先排序优先排序;SACM;SACM快速决策修复快
44、速决策修复)17 17 项改革方案项改革方案程序简化程序简化;管理效率管理效率;诉讼成本诉讼成本;责任公平责任公平;修复技术有效性修复技术有效性和降低技术成本和降低技术成本;技术创新技术创新(15);(15);公众社区参与公众社区参与第二轮变革（第二轮变革（19951995）12 12 项改革方案项改革方案 Brownfield Initiative Brownfield Initiative棕地概念棕地概念第三轮变革（第三轮变革（1995)1995)20 20 项改革方案项改革方案 “常识常识”理性，开发，创新理性，开发，创新38早期乐观期望和实施中现实落差过大早期乐观期望和实施中现实落差过
45、大场地调查程序复杂而且重复很多场地调查程序复杂而且重复很多低效率低效率“污染者付费污染者付费”原则公平原则公平,但大量诉讼拖延修复且费用高昂但大量诉讼拖延修复且费用高昂（从严（从严/共同连带共同连带/可可追溯责任并不公平）追溯责任并不公平）土壤污染问题复杂土壤污染问题复杂,修复技术局限性大而且成本太高修复技术局限性大而且成本太高39立法后立法后(早期早期)的现实是从的现实是从“零零”开始开始场地污染范围场地污染范围 -underestimated-underestimated健康风险程度健康风险程度 -uncertain-uncertain规章、制度、标准规章、制度、标准 zero start
46、 zero start修复技术和费用修复技术和费用 not available and costly not available and costly结果是结果是1980-19891980-1989摸石头过河摸石头过河-进程太慢进程太慢40EPAEPA早期预计是早期预计是76-22776-227亿亿19991999完成完成411998 GAO审计发现EPAEPA平均用平均用9.49.4年完成年完成NPL(NPL(法律要法律要求小于求小于4 4年年)场地修复时间不断延长场地修复时间不断延长(1986-1989(1986-1989年年3.93.9年年;到到19961996年已达年已达10.610.
47、6年年)42Transaction法律追溯诉讼费用诉讼费用高昂高昂基金基金14%14%用于用于EPAEPA法律费用法律费用(1999-2007)(1999-2007)lIdentify PRPs查责任者查责任者lNegotiate with PRPs谈判谈判lLitigate PRP打官司打官司lEnforcement Support执法执法43反弹反弹44拖尾效应拖尾效应土壤结构土壤结构/土层分布土层分布不均不均污染物在土壤孔隙污染物在土壤孔隙中的扩散速率变化中的扩散速率变化修复技术不合理修复技术不合理污染物的分布不均污染物的分布不均复合污染物的组成复合污染物的组成原位原位原位原位异位异位原
48、位原位异位异位原位原位原位原位异位异位强化强化SVE/SBVSVE/SBV合理设计合理设计多相提取、空多相提取、空气气/生物瀑气生物瀑气强化强化SVE/SBVSVE/SBV强化强化SVE/SBVSVE/SBV风险评价风险评价45 棕地成为美国城市头号问题棕地成为美国城市头号问题全国有全国有5050万万(1990)(1990)46新泽西新泽西NJ ECRA lawNJ ECRA law Late 1980s emerging problems with ECRA Alan Mallach,director of housing and economic development for the c
49、ity of Trenton:It was an unmitigated disaster “you had to be insane to get involved in a serious cleanup situation”47Site Screening&Assessment(PA,SI,ESI,RI)Regional Decision TeamEarly ActionLong-Term Hazard RankingEarly Action CompleteLong-Term Action CompleteDeletion from NPLLong-Term Action Remova
50、l Action as NecessaryEnforcement Activities/State Participation/Community RelationsEnforcement Activities/State Participation/Community RelationsTraditional Superfund ProcessSuperfund Accelerated Cleanup Model(SACM)Site DiscoveryPreliminary Assessment(PA)Site Assessment(SI)Expanded Site Inspection(E
