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The author:(作者)delvpublished in(发表于) 2014/1/6 10:18:08 Governance in China haze speed： environmental quality improvement into local government
Chinese rule haze speed
Fine particulate matter air pollution prevention and control plan of action for the first time be incorporated into binding targets and environmental quality improvement into local government system
Text/the lookout news correspondents from hot springs
As of January 1, 2014, will have 161 prefecture-level cities in China to real-time air quality information and participating in air quality ranking, rather than per cent in 2012, almost 1 time has more than doubled. According to the plan, this number will increase at the end of 2015 to 338.
China is in the process of advancing fog and haze for treatment. Vice President of the Chinese research Academy of environmental sciences Chai Fa Newsweek reporters to the lookout, now includes "interviews" of air pollution control, reward and punishment measures are under development.
October 2011, the consecutive fog haze in big cities such as Beijing, raised public attention. In December the seventh National Conference on environmental protection that followed, then-Vice Premier Li keqiang said that environmental quality is a fundamental public good, is that the Government must ensure that the public service.
Since then, China introduced a series of policy measures for controlling haze. "In my opinion, this is a pioneering work, national emphasis on Haze management is unprecedented. "Diesel says.
Historic shift
On control of air pollution in China are to pick up speed.
Chai Fahe told your correspondent, in Beijing, for example, on September 12, 2013, the State Council released a plan of action for the control of air pollution, which proposed concentration of fine particulate matter in Beijing-Tianjin-Hebei region 5 25%, is 5% a year; Beijing, 33%, dropped 6% points more than a year, "is more than 3 times of the original".
He explained: "in recent ten years, national prevention did a good job of urban air pollution, including Beijing, Shanghai, Guangzhou and so on, air improvement per year, that is, major atmospheric pollutants decline, basically in about 2%. ”
For nearly two years, the country has issued a series of policy measures to control haze, Chai Fahe believes most milestone three: released February 29, 2012 the new ambient air quality standards, approved by the State Council on September 27, 2012 focus on regional air pollution prevention and control "Twelve-Five" under the plan, issued by the State Council on September 12, 2013 national plan of action for the control of air pollution.
On February 29, 2012, the new release of the ambient air quality standards, milestones and the value achieved with the World Health Organization standards.
Air pollution control in key regions of the "Twelve-Five" plan is China's first comprehensive plan of prevention and control of atmospheric pollution, which had previously been broadly speaking of air pollution control, but pollution control are broken down into "three ten-Pack", distinguishing between priority control areas and areas controlled by the General, and Beijing, Tianjin and Hebei, Yangtze River Delta, Pearl River Delta and the three regional PM2.5 into assessment indexes for the first time. Deputy Minister of environmental protection Wu Xiaoqing said, this indicates that China's air pollution prevention work has entered a "total amount control of goal-oriented" to "targeting the improvement of environmental quality oriented" historic change.
In January 2013, four fog haze-affected areas in the East of China. Said Chai Fahe, following this haze, all sectors of society are aware of, if the speed of the planning determined by 2012 to control haze, is too slow and cannot meet people's expectations. Therefore, a new Government took stronger measures to develop more positive new plan, to respond positively to the people's concerns.
He said that the air pollution prevention and control plan of action is the largest, most comprehensive ever and most careful safeguards, governance action plan examination most severe air, their severity goes far beyond 2012 focus on regional air pollution prevention and control, published the "Twelve-Five" plan.
Meanwhile, the environmental constraint tightening for many industries. February 19, 2013, environmental Department determines, will on including 19 a province (district, and city) of 47 a to level and the above city zainei of focus control district, on thermal power, and steel, and petrochemical, and cement, and colored, and chemical, six big heavy pollution industry and the coal-fired industrial boiler of new project, thermal power, and steel, and petrochemical industrial and coal-fired industrial boiler of existing project, implementation special emissions limited value. In December 2013, Department of environmental science and Technology Division Xiong Yuehui, introduced at 2013 Summit of listed companies in China's environmental protection, since 2013 the Ministry of environmental protection has issued more than 100 multiple standards.
"This means that, in order to achieve the goals, we have put extraordinary effort. "Chai Fahe stressed.
"Extraordinary efforts"
18 raised the third plenary session of the need to "improve development evaluation system, evaluating performance bias corrected simply by economic growth rate. "December 6, 2013, Central Organization Department issued on improved place party leadership and leading cadres record assessment work of notice under, provides future to place party leadership and leading cadres of various assessment visits, cannot just to area production total and the growth as record evaluation of main indicators, cannot got area production total and the growth ranked, Central about sector cannot simple according to this measure all province (autonomous region, and municipality directly under the) of development effectiveness, Local party committees and Governments cannot simply be assessed accordingly lower leading groups and leading cadres ' performance and examination grades, for limiting the development of regions and countries with fragile ecological poverty alleviation focus of gross domestic product by counties canceled check; and for increased resource consumption, environmental protection, digestion and excess capacity, production and other indicators of weight.
Performance appraisal indicators are considered to be of environmental governance in China "a number", as it relates to local Government how to deal with the relationship between economic development and environmental protection.
Announced on September 12, 2013, in the plan of action for the control of air pollution, which is already reflected. Action plans to fine particulate matter into binding targets for the first time, and environmental quality improvement into local government system. Without the achievement of annual objectives and tasks, and organs of units and personnel according to the law the Standing Committee held to account.
In order to ensure that the task is actually landed, action plan evaluation and accountability clearly stipulates: "the State Council and provinces (autonomous regions and municipalities) people's Government entered into air pollution prevention and control goals document will target decomposition into local people's Governments and enterprises. "This is a major breakthrough in never before, first raised the organizational units involved in the examination of requests. "Pollution prevention Division of the Department of environmental protection Deputy Director Wang Jian had commented to the media.
Appraisal system, development and energy structure is considered key to controlling haze. Zhou shengxian, Minister of environmental protection has repeatedly stressed: "the problems of air pollution in China are the result of long-term accumulation of extensive mode of economic growth, if not from controlling pollution at source in the economic structure, just the ends governing mitigation of environmental pressures is tantamount to ' ultimate measure '. ”
The air pollution prevention and control plan of action "adjust and optimize industrial structure, promoting industrial restructuring and upgrading", "speeding up the adjustment of energy structure and increase the supply of clean energy." Which proposed concrete actions to rein in "high two" industry on new capacity, speed up eliminating backward production capacity, compression, excess capacity, control total coal consumption, accelerate clean energy alternatives, promoting clean coal use, such as improving energy efficiency, is already in force and are being vigorously pursued policies.
In order to ensure policy, China will invest huge amounts of money. According to science argument and the assessment, air pollution control action plans under total needed put 1.75 trillion yuan, will through five a channel raised: according to "who pollution who is responsible for" of principles, by Enterprise commitment; active introduced social capital and civil capital into air pollution control field; through price lever channel part governance cost; to local Government increased livelihood field "coal change gas", and trade-in car and old vehicles eliminated, of policy support intensity; central financial set up special funds, through "to award generation up" Increased focus on support of regional air pollution prevention and control.
Meanwhile, State support for energy conservation and environmental protection industries are greatly enhanced. On August 1, 2013, the State Council issued the opinions on accelerating the development of energy saving and environmental protection industries, a clear development goals for the next 3 years, including energy-saving industrial production value of an annual average growth rate of 15% per cent. By 2015, energy saving and environmental protection industries output value reached 4.5 trillion yuan, become new pillar industries of the national economy. Through the promotion of eco-friendly products, effectively boosting consumer demand through enhanced engineering capability, driving energy social investment growth.
Build a strong executive system
To safeguard the goals, implementation of more powerful systems are under construction.
On September 18, 2013, air pollution prevention and control in Beijing, Tianjin and Hebei and its surrounding area working conference held in Beijing. Ministry of environmental protection, and Beijing, Tianjin, Hebei, Shanxi, Inner Mongolia, Shandong, were signed at the meeting of six provinces and municipal pollution control goals document. In October, the Central Government arranged a 5 billion yuan for air pollution control work Meng Jinlu six provinces of Beijing, Tianjin and Hebei. Zone defense of air pollution control falls to the ground.
Minister of environmental protection Zhou shengxian said October 23, 2013, State air pollution prevention and control are being developed special funding, strengthening air pollution prevention and control programmes in the energy sector, coal coal projects reducing consumption of alternative management practices, assessment methods, such as the air pollution prevention and control plan of action more than 20 a number of complementary policies.
November 13, 2013, in China environment and development international cooperation Committee 2013 will Shang, Zhou shengxian revealed has environmental area of six big reform focus work, respectively is: established unified regulatory all pollutants emissions of environmental protection management system, independent for environment regulatory and administrative law enforcement; established land sea integrated of ecological system protection repair and pollution control regional linkage mechanism; sound State forest operating management system, perfect collective forest right system reform; timely announced environment information, sound reported system, Strengthening social supervision; improving pollutants discharge permit system, the implementation of pollutant discharge quantity control system of enterprises; liability for ecological damage to the environment caused by the strict compensation system, criminal responsibility shall be investigated according to law.
On the "independent environmental monitoring and law enforcement", is considered by industry experts heralded environmental protection departments will implement the national vertical control.
In addition, under 2013 legislative plan of the State Council, amendments to the air pollution control law has been included in the legislative programme focuses on environmental protection, "high compliance costs, illegal low cost" problem.
Deputy Minister of environmental protection Wu Xiaoqing December 2013 stated that the environmental Department has joined the Supreme People's Procuratorate, the Supreme People's Court promulgated the environmental protection of the new judicial interpretation of the Ordinance, required to enhance environmental protection, linked with the police, law enforcement, creating business is strong to combat pollution, changing environmental compliance costs higher in the past, law enforcement difficult plight.
"Eleven-Five" since, under the Executive power by a strong and huge amounts of money into China greatly accelerates pace of energy conservation and emission reduction. From 2006 to 2012, China's energy consumption per unit of gross domestic product dropped by 23.6%.
Institute for resources and environment policy, development research center of the State Council Li Zuojun, Deputy Director to the correspondent pointed out that these measures and haze governance synergies, "but we used to use executive order way more, rely mainly on market power and the rule of law in the future, the key to the transformation of government functions".
The CPC Central Committee on several major issues of comprehensive reform decision made "the market plays a decisive role in the allocation of resources", which will become the key point of China's future reform.
Chai Fa to the correspondent says: "we use of the market, such as sewage charges, the adjustment of industrial structure, Enterprise areas such as pollution prevention, also need to develop more sophisticated policy programme. ”□
中国治霾提速
《大气污染防治行动计划》首次将细颗粒物纳入约束性指标，并将环境质量是否改善纳入官员考核体系之中
文/《瞭望》新闻周刊记者温泉
2014年1月1日起，中国将有161个地级城市向社会实时发布空气质量信息并参与空气质量排名，这比2012年的74个，翻了一倍还多。按照计划，这一数字将在2015年底增加到338个。
中国正在紧锣密鼓地推进雾霾治理。中国环境科学研究院副院长柴发合向《瞭望》新闻周刊记者透露，目前包括“约谈”在内的大气污染治理的奖惩措施都在制定当中。
2011年10月以来，北京等大城市连续出现雾霾天气，引发舆论关注。在随后12月的第七次全国环保大会上，时任国务院副总理李克强表示，基本的环境质量是一种公共产品，是政府必须确保的公共服务。
此后，中国出台一系列政策措施治理雾霾。“在我看来，这的确是个创举，国家对雾霾治理的重视程度是前所未有的。”柴发合认为。
历史性转变
中国对大气污染的治理正在提速。
柴发合告诉本刊记者，以北京市为例，2013年9月12日，国务院公布《大气污染防治行动计划》，其中提出京津冀地区细颗粒物浓度5年下降25%，每年就是5%；北京市下降33%，每年就要下降百分之六点多，“是原来的3倍以上”。
他解释说：“近十年来，全国大气污染防治工作做得比较好的城市，包括北京、上海、广州等，每年空气改善程度，也就是主要大气污染物下降幅度，基本上都在2%左右。”
近两年来国家出台的一系列治理雾霾的政策措施当中，柴发合认为最具里程碑意义的有三个：2012年2月29日发布的新的《环境空气质量标准》、2012年9月27日国务院批复的《重点区域大气污染防治“十二五”规划》、2013年9月12日国务院发布的国家《大气污染防治行动计划》。
2012年2月29日，新的《环境空气质量标准》发布，实现了与世界卫生组织第一阶段目标值接轨。
《重点区域大气污染防治“十二五”规划》是中国第一部综合性大气污染防治规划，它一改过去宽泛地讲大气污染治理，而是把污染治理分为“三区十群”，区分了重点控制区和一般控制区，并在京津冀、长三角、珠三角这三个区域首次将PM2.5纳入考核指标。环保部副部长吴晓青曾评价说，这标志着我国大气污染防治工作进入了由“以总量控制为目标导向”向“以环境质量改善为目标导向”的历史性转变。
2013年1月，四次雾霾天气影响中国中东部地区。柴发合说，这次雾霾之后，社会各界都意识到，如果再按照2012年确定的《规划》速度去治理雾霾，太慢了，不能满足老百姓的期盼。因此，新一届政府拿出更强有力的措施，制定更积极的新规划，去积极回应民众关切。
他评价说，《大气污染防治行动计划》是有史以来力度最大、措施最综合、保障措施最周密、考核最为严厉的空气治理行动计划，其严厉程度又远远超过了2012年发布的《重点区域大气污染防治“十二五”规划》。
与此同时，环保对许多行业的约束都在收紧。2013年2月19日，环保部确定，将对包括19个省(区、市)的47个地级及以上城市在内的重点控制区，对火电、钢铁、石化、水泥、有色、化工等六大重污染行业及燃煤工业锅炉的新建项目，火电、钢铁、石化工业以及燃煤工业锅炉的现有项目，实施特别排放限值。2013年12月，环保部科技司司长熊跃辉在出席2013中国环保上市公司峰会时介绍，2013年以来环保部已出台100多个标准。
“这意味着，为了达到目标，我们必须付出超常规的努力。”柴发合强调指出。
“超常规的努力”
十八届三中全会提出，要“完善发展成果考核评价体系，纠正单纯以经济增长速度评定政绩的偏向。”2013年12月6日，中央组织部印发《关于改进地方党政领导班子和领导干部政绩考核工作的通知》，规定今后对地方党政领导班子和领导干部的各类考核考察，不能仅仅把地区生产总值及增长率作为政绩评价的主要指标，不能搞地区生产总值及增长率排名，中央有关部门不能单纯依此衡量各省(自治区、直辖市)的发展成效，地方各级党委政府不能简单地依此评定下一级领导班子和领导干部的政绩和考核等次，对限制开发区域和生态脆弱的国家扶贫开发工作重点县取消地区生产总值考核；并要求加大资源消耗、环境保护、消化产能过剩、安全生产等指标的权重。
政绩考核指标，被认为是中国进行环境治理的“牛鼻子”，因为它关乎地方政府如何处理经济发展与环境保护的关系。
其实在2013年9月12日公布的《大气污染防治行动计划》中，这一点已有体现。行动计划首次将细颗粒物纳入约束性指标，并将环境质量是否改善纳入官员考核体系之中。如果没有完成年度目标任务，监察机关要依法依纪追究有关单位和人员的责任。
为确保各项任务措施真正落地，行动计划对考核和问责作了明确规定：“国务院与各省(区、市)人民政府签订大气污染防治目标责任书，将目标任务分解落实到地方人民政府和企业。”“这是以前从来没有过的重大突破，首次提出组织部门参与考核的要求。”环保部污防司副司长汪键曾向媒体评论说。
考核体系之外，发展方式和能源结构被认为是治理雾霾的关键。环保部部长周生贤多次强调：“我国大气污染问题是长期粗放型经济增长方式积累造成的，如果不从经济结构的源头控制污染问题，单纯依靠末端治理缓解环境压力，无异于‘扬汤止沸’。”
《大气污染防治行动计划》提出“调整优化产业结构，推动产业转型升级”，“加快调整能源结构，增加清洁能源供应”。其中提出的具体行动，如严控“两高”行业新增产能、加快淘汰落后产能、压缩过剩产能、控制煤炭消费总量、加快清洁能源替代利用、推进煤炭清洁利用、提高能源使用效率等，都是已在实施并且正在大力推行的政策。
为了保障政策推行，中国将投入巨额资金。根据科学论证及评估，《大气污染防治行动计划》共需投入1.75万亿元，将通过五个渠道筹集：按照“谁污染谁负责”的原则，由企业承担；积极引入社会资本和民间资本进入大气污染防治领域；通过价格杠杆疏导部分治理成本；以地方政府加大民生领域“煤改气”、黄标车和老旧车辆淘汰等的政策支持力度；中央财政设立专项资金，通过“以奖代补”加大对重点区域大气污染防治的支持力度。
与此同时，国家对节能环保产业的支持力度也大大增强。2013年8月1日，国务院印发《关于加快发展节能环保产业的意见》，明确了今后3年的发展目标，包括节能环保产业产值年均增速15%以上。到2015年，节能环保产业总产值达到4.5万亿元，成为国民经济新的支柱产业。通过推广节能环保产品，有效拉动消费需求；通过增强工程技术能力，拉动节能环保社会投资增长。
建设强有力的执行体系
为了保障目标实现，更加强有力的执行体系正在建设当中。
2013年9月18日，京津冀及周边地区大气污染防治工作会议在北京召开。环境保护部与北京、天津、河北、山西、内蒙古、山东等六省区市人民政府在会上签订了大气污染防治目标责任书。10月，中央财政安排50亿元用于京津冀蒙晋鲁六省份的大气污染治理工作。大气污染的区域联防联控落地。
环保部部长周生贤2013年10月23日公开表示，国家正在制定大气污染防治专项资金、能源行业加强大气污染防治工作方案、耗煤项目煤炭减量替代管理办法、考核办法等《大气污染防治行动计划》的20多项配套政策。
2013年11月13日，在中国环境与发展国际合作委员会2013年会上，周生贤透露了环保领域的六大改革重点工作，分别是：建立统一监管所有污染物排放的环境保护管理制度，独立进行环境监管和行政执法；建立陆海统筹的生态系统保护修复和污染防治区域联动机制；健全国有林区经营管理体制，完善集体林权制度改革；及时公布环境信息，健全举报制度，加强社会监督；完善污染物排放许可制，实行企业污染物排放总量控制制度；对造成生态环境损害的责任者严格实行赔偿制度，依法追究刑事责任。
其中关于“独立进行环境监管和行政执法”的表述，被业内专家认为预示着环保部门将实行全国范围内的垂直监管。
此外，根据《国务院2013年立法计划》，《大气污染防治法》的修改已列入一档立法计划，重点解决环保“守法成本高、违法成本低”等症结。
环保部副部长吴晓青2013年12月公开表示，环保部已经联合最高人民检察院、最高人民法院出台了环保的新司法条例解释，要求加强环境保护，公安部门执法衔接，形成打击污染企业强大合力，转变过去环境保护守法成本高、违法执法难的困境。
“十一五”以来，在行政力量的强劲推动和巨额资金投入下，中国节能减排步伐大大提速。从2006年到2012年，中国单位国内生产总值能耗下降了23.6%。
国务院发展研究中心资源与环境政策研究所副所长李佐军向本刊记者指出，这些措施的采取与雾霾治理具有协同效应，“但是以前我们采用行政命令的方式比较多，今后主要是靠市场和法治的力量，关键还要看政府职能转变”。
《中共中央关于全面深化改革若干重大问题的决定》提出“使市场在资源配置中起决定性作用”，这将成为中国未来改革的着力点。
柴发合向本刊记者表示：“以后我们在利用市场方式方面，如排污收费、产业结构调整、企业污染防治等方面，还需要制定更为精细的政策方案。”□
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