减污降碳协同治理纳入生态环境管理体系探讨

王文燕; 冯翰林; 郭二民

doi:10.12153/j.issn.1674-991X.20220577

减污降碳协同治理纳入生态环境管理体系探讨

doi: 10.12153/j.issn.1674-991X.20220577

1.
生态环境部环境工程评估中心
2.
山东纵横德智环境咨询有限公司

详细信息

作者简介:
王文燕（1981—），女，副研究员，博士，主要从事减污降碳协同治理、区域管控及环境管理研究，wangwy0515@163.com

通讯作者:
郭二民（1972—），男，教授级高级工程师，主要从事生态环境新技术研究、应用及环境管理，guoem@acee.org.con

中图分类号: X322
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出版历程
- 收稿日期: 2022-06-06
- 网络出版日期: 2022-10-21

Discussion on the integration of pollution reduction and carbon reduction collaborative governance into the ecological environment management system

1.
Appraisal Center for Environment and Engineering, Ministry of Ecology and Environment
2.
Shandong Zongheng Dezhi Environmental Consulting Co., Ltd.

摘要

摘要:
现阶段，减污降碳协同治理纳入生态环境管理体系尚处于探索期，在现有的制度框架下，管理机制和技术方法还需完善。通过厘清各制度环节中的责任主体、边界范围、职能定位等，梳理分析了减污降碳协同治理纳入生态环境管理体系过程中面临的主要挑战以及基于生态环境管理体系的减污降碳协同治理框架。运用现有生态环境管理体系的主要制度环节中的管理和技术要素，以问题为导向，探讨了在源头防控上，根据减污降碳相关试点内容，需完善“三线一单”、规划环评和建设项目环评中碳评的边界范围、工作内容和管理机制；在过程控制上，进一步构建排污许可数据一体化管理；在执法督察上，探索建立全国碳监测网络等方式，提升监察执法运行效力，强化督察问责工作机制，推动构建减污降碳协同的制度体系。
- 减污降碳 /
- 生态环境管理体系 /
- 三线一单 /
- 环境影响评价 /
- 排污许可
Abstract:
At the current stage, it is still in the exploration period for the collaborative governance of pollution and carbon reduction to be incorporated into the ecological environment management system. Under the existing institutional framework, the management mechanism and technical methods are relatively lagging. The main challenges in the process of incorporating the collaborative governance of pollution and carbon reduction into the ecological environment management system were analyzed. By clarifying the responsible subjects, boundary scope and functional positioning, etc., of each institution, the collaborative governance framework for pollution and carbon reduction based on the ecological environment management system was analyzed. Applying the management and technical elements in the main institutional links of the existing ecological environment management system and aiming at the problems, some countermeasures and suggestions were put forward. In terms of source prevention and control, combined with the relevant pilots of collaborative governance of pollution and carbon reduction, the boundary scope, work content and management mechanism of carbon assessment in Three Lines One Permit (TLOP), planning EIA and project EIA should be improved; in terms of process control, the further construction of integrated management of pollutant emission permit data should be considered; in terms of law enforcement and supervision, the ways such as establishing a national carbon monitoring system should be explored to improve the enforcement effectiveness of law supervision, strengthen the mechanism of supervision and accountability, and promote the construction of a cooperative system for reducing pollution and carbon emission.
- reduction of pollution and carbon emissions /
- system of ecological environment management /
- Three Lines One Permit /
- environmental impact assessment /
- pollutant emission permit

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图 1 生态环境管理体系构成

Figure 1. Composition of ecological environment management system

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图 2 研究技术路线

Figure 2. Technical route of this research

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表 1 基于“六位一体”生态环境管理体系的减污降碳协同治理框架

Table 1. The framework of collaborative governance on the reducing pollution and carbon emissions based on the system of "Six-in-One" ecological environment management

关键要素	责任主体	功能定位	边界范围	减污降碳协同治理参与路径
区域环评	地方政府	通过生态环境分区管控，形成区域开发的“框子”和“规矩”，助力区域高质量发展，指导规划环评、项目环评落地	省、市、县等行政边界	1）将国家和地方碳达峰碳中和方案相关管控指标作为区域环评生态环境准入的重要依据；2）采用IPCC方法学、温室气体排放清单编制等，评估区域碳排放总量和强度，参考纳入协同治理技术路径；3）从减污降碳目标、空间、措施与“三线”成果开展协同性分析，优化生态环境管控单元和准入清单
规划环评（园区）	地方行业主管部门、园区管委会	通过论证园区规划方案的生态环境合理性，优化产业布局、结构、规模，落实减污降碳协同增效目标要求和“三线一单”管控要求，助力区域产业绿色转型和高质量发展	管理行业规划范围，园区物理边界	1）自下而上，根据现有资料分析碳排放现状，识别园区层面主要碳排放源，评估减污降碳协同方法；2）自上而下，应用行业、区域尺度碳排放评价技术方法，从行业、园区碳排放现状、评价指标体系、排放源识别、低碳排放与污染物协同控制方法等方面评价。为区域建设项目准入、企业排污许可证申领、执法检查等环节管理提供基础
建设项目环评	纳入《建设项目环境影响评价分类管理名录》的项目建设单位	通过论证建设项目的环境可行性，落实“以新带老”“区域替代”要求，在工程、工艺、设施等方面落实减污降碳协同增效、环境风险防控等具体措施	项目边界和各生产工序边界。改扩建及异地搬迁项目边界考虑现有工程边界；产能置换核算边界应考虑被置换项目出让方项目边界	1）开展污染物和碳排放的源项识别、源强核算、减污降碳措施可行性论证及方案比选，提出协同控制最优方案；2）满足重点污染物排放总量控制、碳排放达峰目标、生态环境准入清单、相关规划环评和相应行业建设项目环境准入条件、环评文件审批原则要求
排污许可	纳入《建设项目环境影响评价分类管理名录》企事业单位和其他生产经营者	固定污染源环境管理的核心制度，实施固定污染源全过程管理和多要素协同控制的“一证式”管理	固定污染源，设施边界只包括直接生产系统	1）按要求进行许可碳排放量（配额）、可行技术、自行监测、实际排放量报送； 2）补充数据表，区别于排放报告中的全厂边界，履约边界直接反映了主管机构管控企业的排放源和核算边界，也可作为未来出台配额分配方案的数据基础
监察执法	地方生态环境管理部门	对企事业单位依法依规开展生态环境保护，落实环评“三同时”有关要求情况，履行污染治理和碳排放控制责任情况进行行政执法检查	工矿企业，个人或团体人为活动影响边界	1）对依法开展排污权交易，“三线一单”、规划环评有关能耗指标、资源和能源循环利用，“两高”行业等准入要求执行情况检查；2）对环评 “三同时”和自主验收有关碳排放控制措施执行情况进行执法检查，国家和省组织碳排放专项执法检查
督察问责	党中央国务院以及省级党委政府	推动地方党委政府落实生态环境保护和应对气候变化的主体责任，督促地方完成突出环境问题整改，促使地方行政部门和有关单位夯实生态环境保护“一岗双责”	地方党委政府，政府相关责任部门，有关企事业单位	1）将减污降碳协同治理制度实施情况作为督察重要内容；2）开展碳减排专项督察，就地方党委政府碳减排政策落实，地方能源和产业等结构调整，碳排放指标落实，绿色低碳发展政策等情况进行督察

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