页岩气是一种新兴的非常规天然气资源。在我国，页岩气是一种独立矿种，具有开采寿命长、分布范围广和气藏形成特殊等特点，储量丰富。页岩气开发利用会导致水资源浪费和污染、大气污染、土壤污染等环境污染和生态破坏问题。我国现阶段对于页岩气开发利用过程中的环境保护缺乏有力的法律依据，在环境风险防范型法律制度、监控规制型法律制度和救济保障型法律制度方面存在诸多问题，亟待完善。
页岩气开发利用环境保护制度按照功能不同，可以划分为风险防范型法律制度、监控规制型法律制度和救济保障型法律制度。风险防范型法律制度，是指为了防止页岩气开发利用可能产生的环境污染和生态破坏而在此种负面环境影响发生前采取的预防性法律措施，典型制度包括环境影响评价制度和信息公开制度等。页岩气开发利用环境影响评价制度主要存在的问题包括缺少专门环境影响评价导则、评价主体缺乏专业性、评价范围不全面、评价实施效果的局限性和公众参与不足。为此，应扩大环境影响评价范围，健全环境影响评价导则体系，实行全过程动态环境影响评价制度，加强公众参与程度，并提高环境影响评价从业人员的专业性。页岩气开发利用信息公开制度主要存在环境信息公开范围模糊、依申请公开主体范围窄、企业信息公开责任制度不完善和救济手段不健全的问题。为此，应明确信息公开具体内容，强化企业信息公开责任，并加强信息公开救济力度。
监控规制型法律制度，是对于页岩气开发利用过程中可能产生或已经产生的环境污染和生态破坏，通过监督、控制和管理手段，避免或降低负面环境影响的一整套措施，典型制度包括环境保护许可证制度和环境标准制度。环境保护许可证制度主要存在矿业权权属不明、后期监督效力低和欠缺明确的页岩气排污权交易程序的问题。为此，应明确矿业权权属，实行长效动态许可监督机制，建立页岩气开发利用排污权交易制度。环境标准制度主要存在环境标准缺失、缺少配套法律法规支撑和环境标准实施的配套措施不完善等问题。鉴于此，应制定页岩气开发利用环境标准，强化环境标准监督体制，完善环境标准实施的配套措施。
救济保障型法律制度，是指针对页岩气开发利用过程中环境权益或者财产权益遭受损害的法律主体提供救济和帮助的一整套措施，典型制度包括财政调控制度和生态补偿制度。财政调控制度主要存在的问题包括未制定具体的环境保护财政调控政策、清洁技术研发财政支持支出不足和缺少专门的排污收费标准。为此，应制定具体的环境保护财政调控政策，加大页岩气开发利用环境保护资金投入，加强页岩气开发利用环境保护财政监督管理。页岩气开发利用生态补偿制度主要存在缺少充足的法律依据、矿产资源税费制度不健全和生态补偿配套措施不足等问题。为此，应完善生态补偿法律法规，健全生态补偿税费制度和制定生态补偿配套措施。
关键词: 页岩气，开发利用，环境保护，法律制度
ABSTRACTShale gas is a kind of new unconventional natural gas. In China, shalegas is regarded as an independent mineral. It has the characteristics of along exploitation life, wide distribution and special way of gas reservoirsform, moreover there are abundant reserves in the world and in China.
Shale gas development and utilization can lead to the waste of waterresources, water pollution, air pollution and other environment pollutionsand ecological damages. China currently is lack of effective legalregulation on shale gas development and utilization. Because of this reason,there are some problems in the environment protection legal system ofshale gas exploitation and utilization.
In terms of different functions, the environment protection legalsystem of shale gas exploitation and utilization can divided into riskprevention legal system, controlling and regulation legal system, andsupporting and remedy legal system. Risk prevention legal system is onethat in order to prevent the environment pollutions and ecological damageswhich induced by shale gas development and utilization. In the field of riskprevention legal system, environmental impact assessment (EIA) andinformation disclosure system are the typical legal system. On the aspect ofenvironmental impact assessment, there are include some problems, such aslack of the special guideline, the principal part are unprofessional, incomplete EIA scopes, public participation is limit, etc. Therefore, weshould extend the EIA scopes, establish the full-range dynamic assessmentprocess, strengthen the public participation and improve the employee’sability, etc. On the aspect of information disclosure system also have someproblems, such as the scope of information disclosure system is fuzzy,applicants for information disclosure are too narrow, the responsibility ofthe enterprise information is incomplete and relief methods are unsound,etc. Therefore, the specific content of information disclosure should beexplicated, strengthen the information disclosure responsibility ofenterprises and reinforce the information disclosure relief.
Controlling and regulation legal system refers to through supervision,regulation and control methods to avoid or reduce the negativeenvironmental impact during the shale gas exploitation and utilizationprocess. The typical controlling and regulation legal system includesenvironmental protection permit system and environmental standard system.
The main problems for environmental protection permit system include themining right property is unclear, less efficient supervision in advancedstage, lack of special shale gas emission trading procedure. Therefore,government should clear mining property right, practice effective dynamicpermission supervision mechanism, construction shale gas emission tradingsystem. The main problems for environmental standard system include lackof environmental standard and relevant laws and regulations, incompleteequipped measures for environmental standard. Therefore, we should set upshale gas environmental standard, strengthen the environmental standardsupervise mechanism, improve the equipped measures, etc.
Supporting and remedy legal system refers to providing remedy andhelp to the principal of environmental and property rights are violated. The typical supporting and remedy legal system includes fiscal system andecological compensation system. The main problems of fiscal systeminclude no special fiscal rules to stipulate environmental protection, lack ofsupport to clean energy technologies, etc. Therefore, for shale gasdevelopment and utilization of environmental protection, governmentshould institute feasible policies and increase financial input, etc. The mainproblems of ecological compensation system include lack of enough legalbasis, mineral resources institution of taxation and fee is not sound, etc.
Therefore, government should improve laws and regulations, soundecological compensation system taxation and fee system, formula relevantmatching measures, etc.
KEY WORDS: Shale gas, development and utilization,environmental protection, legal system
目 录
引 言
一、选题背景与目的
（一）选题背景
（二）选题目的
二、研究现状
三、主要研究内容
四、研究方法
（一）文献研究法
（二）综合分析法
（三）比较研究法
五、主要创新
第一章 绪论
一、页岩气概述
（一）页岩气及其特点
（二）页岩气的分布状况
二、页岩气开发利用主要环境问题概述
（一）水资源浪费
（二）水资源污染
（三）大气污染
（四）其他环境问题
三、页岩气开发利用环境保护法律制度概述
（一）概念界定
（二）现有法律基础
第二章 风险防范型制度
一、概述
二、环境影响评价制度
（一）环境影响评价制度的现状
（二）环境影响评价制度存在的问题
（三）环境影响评价制度的完善建议
三、信息公开制度
（一）信息公开制度的现状
（二）信息公开制度存在的问题
（三）信息公开制度的完善建议
第三章 监控规制型制度
一、概述
二、环境保护许可证制度
（一）环境保护许可证制度的现状
（二）环境保护许可证制度存在的问题
（三）环境保护许可证制度的完善建议
三、环境标准制度
（一）环境标准制度的现状
（二）环境标准制度存在的问题
（三）环境标准制度的完善建议
第四章 救济保障型制度
一、概述
二、财政调控制度
（一）财政调控制度的现状
（二）财政调控制度存在的问题
（三）财政调控制度的完善建议
三、生态补偿制度
（一）生态补偿制度的现状
（二）生态补偿制度存在的问题
（三）生态补偿制度的完善建议
第五章 结论
参考文献
