生態(tài)文明建設(shè)背景下的環(huán)境保護(hù)制度體系創(chuàng)新研究

1、生態(tài)文明建設(shè)背景下的環(huán)境保護(hù)制度體系創(chuàng)新研究Institutional Innovation for Environmental Protectionin the Context of Ecological Civilization王玉慶 中國環(huán)境科學(xué)學(xué)會理事長WANG Yuqing President of Chinese Society of Environmental Sciences羅賓克拉克 澳大利亞可持續(xù)發(fā)展、環(huán)境、水務(wù)、人口與社區(qū)部前秘書長Robyn Kruk Former Secretary of Department of Sustainability, Environmen

2、t, Water, Population and Communities, Australian GovernmentDec 2, 2014主要內(nèi)容Contents一、背景及研究過程1. Background andApproach三、國際經(jīng)驗(yàn)綜述3. International Experiences二、主要研究結(jié)論2. Key Findings四、主要政策建議4. Policy Recommendations十八大將生態(tài)文明納入社會主義現(xiàn)代化建設(shè)五位一體總體布局，融入經(jīng)濟(jì)、政治、文化、社會建設(shè)，有力推進(jìn)中國環(huán)境保護(hù)的進(jìn)程。十八屆三中全會提出加快建立生態(tài)文明制度體系，用制度保護(hù)環(huán)境，改革生態(tài)

3、環(huán)境保護(hù)管理體制。 中國高速工業(yè)化城市化，資源環(huán)境問題日益突出，人民迫切希望改善環(huán)境質(zhì)量。當(dāng)前中國環(huán)境治理體系及環(huán)保制度亟待改革。為此國合會設(shè)立年度重點(diǎn)課題，開展環(huán)境保護(hù)制度創(chuàng)新的研究。本研究適應(yīng)形勢發(fā)展需要，有必要性和緊迫性。18th CPC National Congress: ecological civilization (EC) & promotion of environmental (env.) protection are key for Chinas modernization.3rd CPC Plenary: outlined comprehensive strategy

4、for establishing EC institutions and reforming ecological and env. management systems. Due to rapid industrialization, China faces serious resource & env. problems. National consensus behind need to improve envl quality.Chinas envl management system has many defects and needs reform. CCICED Task For

5、ce to Study Institutional Innovation for Environmental Protection (2014). 一、背景與研究過程1. Background andApproach（一）研究背景 1.1 Background識別當(dāng)前中國環(huán)境治理體系、環(huán)境保護(hù)制度存在的主要問題，分析其現(xiàn)狀與生態(tài)文明建設(shè)要求及國家環(huán)境治理目標(biāo)之間存在的差距，重點(diǎn)研究環(huán)境保護(hù)體制機(jī)制創(chuàng)新，特別是關(guān)鍵的制度創(chuàng)新需求，在借鑒發(fā)達(dá)國家經(jīng)驗(yàn)及國內(nèi)經(jīng)驗(yàn)教訓(xùn)的基礎(chǔ)上，提出中國環(huán)境治理體系現(xiàn)代化、環(huán)境保護(hù)制度改革與創(chuàng)新的基本思路和具體建議，為未來一段時期中國國家環(huán)境治理體系的變革和治理能力的提

6、升、環(huán)境管理戰(zhàn)略轉(zhuǎn)型的頂層設(shè)計(jì)提供參考和支持。Identified the prerequisites of ecological civilization, analysized the existing environmental governance system, compared institutional structures with best practices both domestically and internationally. Drawing on both domestic and international experiences and lessons. Ma

7、de recommendations related to the modernization of Chinas environmental governance system and the reform and innovation of its environmental protection institutions are made. Chinese and international case studies provide practical guidance relevant to the transformation of Chinas environmental gove

8、rnance system, improving governance capacity, and developing an over-arching and strategic design for environmental management.（二）研究目標(biāo)內(nèi)容 1.2 Objectives and Scope技術(shù)路線 Roadmap本課題研究內(nèi)容包括：推動國家環(huán)境治理體系改革和治理能力現(xiàn)代化，環(huán)境保護(hù)制度和體制創(chuàng)新，環(huán)境管理戰(zhàn)略轉(zhuǎn)型的頂層設(shè)計(jì)。六個子課題：（1）環(huán)境治理體系的理論框架和現(xiàn)代化目標(biāo)研究；（2）提高環(huán)境保護(hù)社會治理水平研究；（3）生態(tài)環(huán)境保護(hù)管理體制改革研究；（4）環(huán)境

9、保護(hù)制度創(chuàng)新的總體思路研究；（5）環(huán)境管理戰(zhàn)略轉(zhuǎn)型的總體研究；（6）國際經(jīng)驗(yàn)與案例。Task Force objectives: Provide advice to: (1) accelerate reform of the national envl governance system and improve envl governance capacities; (2) stimulate innovations in envl protection institutions and governance systems to improve envl quality; (3) propo

10、se a top-level design for a strategic transformation of envl management approaches. Sub-topics:（二）研究目標(biāo)內(nèi)容 1.2 Objectives and ScopeTheoretical framework and modernization objectives of Chinas environmental governance systemImprovement of social governance capacity for environmental protectionReform of

11、 Ecological & Environmental Protection Management InstitutionsGeneral Thoughts for Institutional Innovation for Environmental ProtectionGeneral Study on Strategic Transformation of Environmental ManagementInternational Experiences and Case Studies （三）工作進(jìn)展 1.3 Progress Feb. Chinese Team and Consultin

12、g team organized. Feb.21 The 1st Consulting Meeting on the Implementation Plan. Mar. 14 Inception and 1st Plenary Meeting. June 21-24 Study tour to Zhejiang Province and Shanghai. June 23 Workshop on Environmental Social Governance. July 15 First Draft of Report July 18 The 2nd Consulting Meeting on

13、 draft reports. July 23-30 Study tour to EU July 28 2nd Plenary Meeting in Berlin. Aug. Revising draft report Sept 14 3rd Plenary Meeting in Beijing. Sept 22 3rd Consulting Meeting on the Final General report. Sept 25-28 Study tour to Gansu Province and Ningxia District. Oct. Final report submit to

14、CCICED 2014年2月 項(xiàng)目團(tuán)隊(duì)組建 2月21日 中方顧問研討會論證方案 3月14日 課題啟動會暨第一次全體會 6月21-24日 浙江、上海調(diào)研 6月23日 環(huán)境社會治理研討會 7月15 報告初稿 7月18日 第二次中方顧問研討會 7月23-30日 歐盟、德國調(diào)研 7月28日 第二次全體會議 8月 修改報告 9月14日 第三次中外方全體會議 9月22日 第三次中方顧問會論證報告 9月25-28 甘肅、寧夏調(diào)研 10月 完成最終稿，提交國合會（一）中國嚴(yán)重的環(huán)境問題凸顯國家環(huán)境治理體系缺陷 1、當(dāng)前中國資源約束趨緊、環(huán)境污染嚴(yán)重、生態(tài)系統(tǒng)退化； 2、環(huán)境治理體系是國家治理體系的重要組成，治

15、理體系和治理能力需要現(xiàn)代化； 3、政府過度集權(quán)，常常不能依法辦事會；企業(yè)缺乏社會責(zé)任，違法排污嚴(yán)重；人民群眾環(huán)境權(quán)益觀念淡薄，參與能力不足。（二）環(huán)境保護(hù)制度體系問題的根源： 1、發(fā)展階段性；2、體制上-環(huán)保部門授權(quán)有限、能力薄弱，部門間環(huán)保職能交叉缺位，配置不合理，對地方監(jiān)督缺乏體制安排；3、機(jī)制上-未重視環(huán)保監(jiān)督考核，制度不合理，執(zhí)行不到位，有利于環(huán)保的市場和公眾參與機(jī)制缺位。4、指導(dǎo)思想上-存在經(jīng)濟(jì)發(fā)展優(yōu)先于環(huán)境保護(hù)、收益大于環(huán)境破壞成本、當(dāng)前經(jīng)濟(jì)收益重于未來環(huán)境成本的思想。2.1 Serious envl problems expose gaps in envl governance

16、Need to modernize envl governance system & capacities to meet EC objectives & env. targets.Government reliant on traditional management models, enterprises lack sense of social responsibility, society has limited capacity for participation. 2.2 Problems in the existing envl protection institutions S

17、tage of development Envl protection administrations lack influence, capacity, resources & authority and hindered by the pursuit of GDP Envl responsibilities of government departments at times overlap, at times too dispersed Lack supervision, enforcement and participation mechanisms. Misguided belief

18、 that the economy will continue to benefit through exploitation of the environment二、主要研究結(jié)論 2. Key Findings（三）環(huán)境保護(hù)體制改革1、處理好三個關(guān)系：政府、市場與社會的關(guān)系；統(tǒng)一管理與專業(yè)分工管理的關(guān)系；中央與地方環(huán)保事權(quán)劃分的關(guān)系。2、總體方向：以環(huán)保大部制和增強(qiáng)權(quán)威性為改革方向，健全綜合管理和專業(yè)分工格局，明確政府各部門環(huán)保職責(zé)，建立責(zé)任追究機(jī)制；完善跨區(qū)域協(xié)調(diào)機(jī)制以及對地方政府的監(jiān)督機(jī)制；增強(qiáng)生態(tài)環(huán)境監(jiān)管的統(tǒng)一性、獨(dú)立性和有效性。（四）環(huán)境管理戰(zhàn)略轉(zhuǎn)型：目標(biāo)、方式和工作重點(diǎn)的轉(zhuǎn)變1、“

19、十二五”開始，“十三五”各項(xiàng)環(huán)境管理工作應(yīng)圍繞環(huán)境質(zhì)量管理開展。2、平衡環(huán)境、經(jīng)濟(jì)和社會發(fā)展的關(guān)系，協(xié)調(diào)土地開發(fā)、資源利用與生態(tài)環(huán)境承載力的關(guān)系。改變過于依賴行政命令與管制手段，建立機(jī)制促進(jìn)企業(yè)與社會參與環(huán)境保護(hù)。建立高質(zhì)量環(huán)境信息數(shù)據(jù)系統(tǒng)。構(gòu)建有利于環(huán)境質(zhì)量改善的經(jīng)濟(jì)體系，推進(jìn)環(huán)境管理各領(lǐng)域轉(zhuǎn)型與制度創(chuàng)新。2.3 Reform of envl protection institutions Redefine relationships between government, market & society. Incorporate envl considerations into stra

20、tegic decision making. Ensure compliance with envl laws. Strengthen supervision & oversight of economic/resource departments and local governments with a more powerful, authoritative and better resourced Env ministry and departments. Clarify envl roles and responsibilities of central & local governm

21、ents, especially economic departments; Strengthen accountability mechanisms. Regional coordination mechanisms. Independent and effective ecological & envl supervision. Engagement of third parties2.4 Strategic transformation of envl management: objectives, methods and priorities. Focus on envl qualit

22、y improvements Rebalance env., economy and society in key policy areas supported by dispute resolution mechanisms. Use science to link resource use and carrying capacity. Move from reliance on command and control measures. High quality, respected & integrated envl information systems. Facilitate act

23、ive engagement of enterprises & community. Establish an economic system that supports envl quality improvements. Incentivize innovation. 二、主要研究結(jié)論 2. Key Findings環(huán)境保護(hù)制度體系Environmental Protection Institutions環(huán)境污染預(yù)防治理制度Pollution Prevention and Control生態(tài)保護(hù)與修復(fù)制度Ecological Protection and Restoration基本環(huán)境保護(hù)

24、制度Common Environmental Protection Institutions污染排放總量控制制度TotalEmission Control環(huán)境保護(hù)制度體系架構(gòu)Framework of Environmental Protection Institutions二、主要研究結(jié)論 2. Key Findings生態(tài)補(bǔ)償制度Ecological Compensation環(huán)境信息公開制度Environmental information disclosure污染排放總度污染排制度污染排放總度污染排放總度污染排放總度污染排放總度（五）環(huán)境社會治理是環(huán)境治理體系中的短板，亟需加強(qiáng) 以制度建設(shè)

25、為重點(diǎn)，打造政府主導(dǎo)的“多元共治”的環(huán)境治理模式，包括治理主體的多元化、治理方式的多元化、治理渠道的多元化。（六）環(huán)境保護(hù)制度體系改革的總體思路 1、各級政府帶頭執(zhí)行環(huán)保法規(guī)，確保所有重要政策決策過程貫徹生態(tài)文明建設(shè)要求。 2、環(huán)境保護(hù)制度體系改革的重點(diǎn)應(yīng)聚焦在風(fēng)險最高、公眾最關(guān)心、收益最大的領(lǐng)域。 3、總體思路：堅(jiān)持依法治國，用制度保護(hù)生態(tài)環(huán)境；按照鼓勵和調(diào)動一切積極因素參與環(huán)境保護(hù)的原則構(gòu)建政府主導(dǎo)、市場調(diào)節(jié)、社會行動的多元共治體制；更多地采用“國家宏觀指導(dǎo)監(jiān)督，地方自主創(chuàng)新”的新型環(huán)境管理模式。2.5 Social governance is the weakest link and n

26、eeds to be strengthened. Establish a multi-stakeholder joint envl governance system led by government, which fosters multiple stakeholder participation & multiple governance methods & channels & increases awareness, consensus & public confidence. 2.6 General direction of environmental management ins

27、titutional reform. Central & local government must lead by example in complying with environmental laws & ensure that all government entities & decision-making processes comply with EC objectives. Reform efforts need to be focused on areas of greatest risk, public concern and potential gains. Follow

28、 the rule of law & set clear laws & prescriptions to protect the env. Encourage & mobilize all stakeholders to engage in envl protection and form a multi-stakeholder governance system by the Government Leading, Market Regulating and Social Action. National government (state) provides macro guidance

29、& supervision, while localities focus on independent innovation.二、主要研究結(jié)論 2. Key Findings Reform of environmental social governance institutions“多元共治”環(huán)境治理格局的主體及相互關(guān)系Subjects and relationships in a multivariate environmental governance pattern二、主要研究結(jié)論 2. Key Findings三、國際經(jīng)驗(yàn)綜述 3. International Experience

30、s 以科學(xué)為依據(jù)制定政策，可推動形成強(qiáng)大的環(huán)境治理體系，該體系具有靈活性、充滿活力，以事實(shí)支撐，并以結(jié)果為導(dǎo)向，最適于解決傳統(tǒng)治理體系無法解決的一些問題。 數(shù)據(jù)的可得性和透明度是進(jìn)行有效環(huán)境治理的關(guān)鍵要素。數(shù)據(jù)應(yīng)具有可靠性、便于使用，具有統(tǒng)一的形式，以便用于評估問題、監(jiān)測進(jìn)展、有效監(jiān)督和促進(jìn)守規(guī)、推動創(chuàng)新，并通過參與及社會監(jiān)督的方式推動社會治理。 建立環(huán)境績效評估方法和標(biāo)準(zhǔn)及獨(dú)立仲裁機(jī)構(gòu)體系，以便公平地確保每個實(shí)施主體的利益、權(quán)力和目標(biāo)。Science driven policy making Data availability and transparency: reliable, acce

31、ssible & integrated to properly assess problems & monitor progress, monitor & enforce compliance, drive innovation & assist in promoting social governance. Nationally systemize methods and standards for envl performance assessments & independent arbitration bodies to fairly ensure the interests, aut

32、hority & objectives of each implementing entity (e.g. U.S Toxic Release Inventory)三、國際經(jīng)驗(yàn)綜述 3. International Experiences 包括高層監(jiān)督部門的審查和政策評估制度，及獨(dú)立的評估機(jī)制，以監(jiān)測和審視政策實(shí)施和進(jìn)展情況，并據(jù)此調(diào)整制度措施。該機(jī)制對德國實(shí)施能源轉(zhuǎn)型計(jì)劃發(fā)揮了至關(guān)重要的作用。 增強(qiáng)環(huán)保意識。美國1969年頒布的國家環(huán)境政策法（NEPA）發(fā)揮了核心作用，提高了整個聯(lián)邦政府的環(huán)保意識，并確保了在各機(jī)構(gòu)和部門的決策制定中應(yīng)考慮環(huán)境價值。要求聯(lián)邦機(jī)構(gòu)為所有“顯著影響人類生存環(huán)境質(zhì)量

33、的大型聯(lián)邦行動”，如土地利用、能源生產(chǎn)、交通運(yùn)輸和生態(tài)系統(tǒng)等具有大規(guī)模環(huán)境影響的聯(lián)邦行動進(jìn)行環(huán)境影響分析（EIS），并評估其可能的替代方案，從而加大各項(xiàng)聯(lián)邦行動的透明度和公眾參與程度。(iv) Monitor, assess, & evaluate policy implementation & progress & adjust institutional measures where appropriate. Link to continuous performance improvements. These mechanisms are critical if Germany is to

34、 meet its ambitious energy reforms through its Energiewende.(v) Enhance awareness of envl protection needs for constructive public involvement. U.S. National Environmental Protection Policy Act (NEPA) 1969 ensured that environmental values were taken into account in agency and departmental decision

35、making. Environmental impact assessments (EISs) required for all major federal actions significantly affecting the quality of the human environment. Important for transparency and public engagement and analysis of environmental impacts and evaluations of alternatives.三、國際經(jīng)驗(yàn)綜述 3. International Experi

36、ences 強(qiáng)化激勵機(jī)制，可以成功轉(zhuǎn)變?nèi)藗兊男袨?。例如日本?shí)施的商業(yè)領(lǐng)跑者計(jì)劃，顯著減少了能源消耗。 區(qū)域性污染物治理的政策和制度。根據(jù)美國的清潔空氣法，美國環(huán)保署已經(jīng)通過減少州內(nèi)污染物排放，以及與跨州界污染運(yùn)輸?shù)膮^(qū)域控制相結(jié)合的手段，成功實(shí)現(xiàn)了空氣質(zhì)量的改善。 聯(lián)邦體制內(nèi)的政策協(xié)調(diào)。澳大利亞2007年通過的國家水法令，美國通過清潔空氣合作性聯(lián)邦框架，制訂了成功解決區(qū)域性/流域性環(huán)境挑戰(zhàn)的法規(guī)措施。(vi) Strengthening incentive structures has successfully changed behaviours as demonstrated in the

37、Top Runner Program in Japan that has reduced energy use.(vii) Policies and institutions for governing regional transport of pollutants. Under the U.S Clean Air Act, the EPA successfully led air quality improvements that relied both on in-state emission reductions and regional scale controls for poll

38、ution transported across state boundaries. (viii) Policy coordination within federal systems is critical. Australia & the United States have successfully introduced statutory measures to address regional & catchment based envl challenges (Australian National Water Act, 2007; U.S Clean Air Cooperativ

39、e Federalism Framework).ReefBlitz, involves both private organizations and the community in monitoring and working to improve the health of the Great Barrier Reef一、動員各方面的力量建設(shè)生態(tài)文明，明確職責(zé)，協(xié)調(diào)政策，整合目標(biāo)，形成合力。1、國務(wù)院制定新的政府部門“三定”方案，明確各部門特別是綜合部門生態(tài)文明建設(shè)的職能，貫徹資源節(jié)約、環(huán)境友好的要求。將環(huán)境質(zhì)量作為地方政府政績考核的硬約束，組織第三方對有關(guān)部委及地方政府環(huán)保工作進(jìn)行評估，

40、結(jié)果公開。2、建立由國務(wù)院主管領(lǐng)導(dǎo)任主任的國務(wù)院環(huán)境保護(hù)委員會（或國務(wù)院可持續(xù)發(fā)展委員會），指導(dǎo)協(xié)調(diào)各部門的環(huán)境保護(hù)工作，指導(dǎo)協(xié)調(diào)跨區(qū)域、流域生態(tài)環(huán)境保護(hù)工作，對各部門及地方政府的環(huán)境績效進(jìn)行獎懲。3、整合國務(wù)院各部門污染防治和有關(guān)生態(tài)保護(hù)的職能，突出環(huán)境保護(hù)部門統(tǒng)一、獨(dú)立的監(jiān)督執(zhí)法權(quán)力。Recommendation 1: Mobilize governmental, social & economic resources to build EC. Clearly define responsibilities, establish coordination mechanisms & poli

41、cies, develop integrated goals, and form synergies.(i) Clarify EC responsibilities of all State Council departments. Environmental quality improvement-based performance evaluation for local governments. Third party independent evaluation of the performance of ministries and local governments. (ii) E

42、stablish State Council Environmental Protection Committee (or State Council Sustainable Development Committee) to coordinate across departments & regional envl protection activities, & incentive & penalize ministries & local governments according to their envl performance. (iii) Integrate scattered

43、pollution prevention & control & ecological protection functions in a more unified structure that provides independent supervision and enhanced enforcement power.四、主要政策建議 4. Policy Recommendations二、建立有利于環(huán)境保護(hù)的激勵機(jī)制。1、落實(shí)國家鼓勵環(huán)境保護(hù)的各項(xiàng)財(cái)稅、物價、金融政策。確保財(cái)政投入環(huán)保資金增長率不低于財(cái)政收入增長率。設(shè)立專項(xiàng)環(huán)境污染治理基金。鼓勵公私合作模式（PPP）建設(shè)運(yùn)營環(huán)境基礎(chǔ)設(shè)施。

44、2、建立企業(yè)環(huán)境信用評價體系，對遵守法規(guī)的企業(yè)給予鼓勵，對大量中小企業(yè)提供治理服務(wù)平臺。3、積極推動行業(yè)、企業(yè)自愿追求良好環(huán)境績效的行動。4、堅(jiān)持“誰污染誰付費(fèi)，誰破壞誰賠償，誰保護(hù)誰受益”的原則，加快推進(jìn)和完善生態(tài)補(bǔ)償制度，調(diào)動地方政府特別是財(cái)政困難地區(qū)保護(hù)環(huán)境的積極性。Recommendation 2: Establish incentive mechanisms to promote envl protection. (i) Implement national fiscal, taxation, pricing & financial policies that encourage e

45、nvl protection. Growth in fiscal budget for envl protection should not be lower than revenue growth. Set up environmental pollution remediation funds. Encourage public-private partnerships (PPP). (ii) Establish an Enterprise Envl Credit Evaluation System. Set up a pollution treatment services inform

46、ation platform targeting small and medium sized enterprises (SMEs).(iii) Promote industries and enterprises voluntary pursuit of good envl performance, through programs like the Green Supply Program and the Top Runner Program.(iv) According to the principles of he who pollutes pays, he who damages c

47、ompensates, he who protects benefits, set up an eco-compensation mechanism, & mobilize local governments for envl protection, especially in areas experiencing fiscal difficulties.四、主要政策建議 4. Policy Recommendations三、加強(qiáng)環(huán)境保護(hù)社會治理，形成多元共治格局。努力形成政府主導(dǎo)的多元共治格局，是解決中國環(huán)境問題的治本之策。1、優(yōu)先制定落實(shí)公眾參與、信息公開、環(huán)境訴訟的具體制度。認(rèn)真執(zhí)行環(huán)境

48、信息報告和公開制度，使環(huán)境保護(hù)制度在科學(xué)的基礎(chǔ)上、在法律的約束下、在公開透明的條件中得到有效的執(zhí)行。2、培育發(fā)揮環(huán)保社會組織的作用，營造有利于其發(fā)展的社會環(huán)境。3、鼓勵基層組織關(guān)注環(huán)境問題的治理，反映公眾環(huán)境訴求，制定環(huán)境保護(hù)的社規(guī)民約，倡導(dǎo)綠色生活方式。Recommendation 3: Strengthen social governance for envl protection and develop a multi-stakeholder governance model.(i) Develop and implement systems for public participati

49、on, information disclosure & envl litigation as required by the new Envl Protection Law. Implement open and transparent envl information reporting and disclosure of pollution discharges, pollution treatment and potential envl risks and ensure effective enforcement. (ii) Encourage envl protection soc

50、ial organizations to play a role and create a social environment and the legal conditions to facilitate their development. (iii) Encourage grassroots organizations to focus on envl management issues, embrace the publics envl demands, develop community by-laws for envl protection, & advocate green li

51、festyles. 四、主要政策建議 4. Policy Recommendations四、使環(huán)境保護(hù)部門的權(quán)威、能力和資源與其監(jiān)督管理職責(zé)及任務(wù)相匹配。1、落實(shí)環(huán)境保護(hù)主管部門“統(tǒng)一監(jiān)督管理”的規(guī)定，國務(wù)院制定相關(guān)行政法規(guī)，明確規(guī)定環(huán)保部門監(jiān)督同級政府相關(guān)部門及下級政府環(huán)保工作的權(quán)責(zé)及工作程序。2、建立統(tǒng)一的環(huán)境信息平臺，實(shí)現(xiàn)及時準(zhǔn)確的數(shù)據(jù)信息共享。建立環(huán)保部統(tǒng)一管理的國家環(huán)境質(zhì)量監(jiān)測網(wǎng)，改革環(huán)境統(tǒng)計(jì)制度。3、加大財(cái)政對環(huán)?？茖W(xué)研究、監(jiān)測及信息化能力、監(jiān)督執(zhí)法能力的支持，鼓勵社會化方式提供各種環(huán)境服務(wù)。增加環(huán)保部門公務(wù)員編制，提高執(zhí)法人員素質(zhì)，盡快作出環(huán)境管理執(zhí)法人員盡職免責(zé)的司法解釋。Re

52、commendation 4: Match envl protection departments authority, capacity, & resources to their supervision and management functions & tasks.(i) State Council should specify environmental protection departments authorities to supervise the envl protection activities of other departments and local govern

53、ments. (ii) Establish a unified environmental information platform to achieve timely and accurate data sharing. Set up a national environmental quality monitoring network under the management of the Ministry of Environmental Protection. (iii) Increase fiscal investments in environmental scientific r

54、esearch, monitoring & information gathering, & supervision & enforcement capacities. Encourage provision of envl services through market mechanisms. (iv) Increase overall number & capability of envl protection departments civil servants to match their workload and statutory responsibilities. Prescri

55、be envl law enforcement duties; offer training. 四、主要政策建議 4. Policy Recommendations五、以提高效率、確保制度有效實(shí)施為目標(biāo)，改革整合環(huán)境管理制度。重新審視環(huán)境管理制度的科學(xué)性和合理性，及時修訂環(huán)保法律和制度。1、研究制定包括主要污染物排放、煤炭消費(fèi)、二氧化碳排放的全面總量控制制度。探索實(shí)施以環(huán)境容量為基礎(chǔ)的區(qū)域性、流域性污染物總量控制制度和行業(yè)污染物總量控制制度。2、出臺污染物排放許可制度相關(guān)法規(guī)和實(shí)施細(xì)則，將排污單位納入統(tǒng)一監(jiān)管。改革環(huán)境影響評價制度，廢除“三同時制度”，做好與排污許可制度的銜接。環(huán)境影響評價制度

56、應(yīng)重點(diǎn)用于戰(zhàn)略、規(guī)劃、政策和國家跨區(qū)域流域?qū)ι鷳B(tài)環(huán)境有重大影響項(xiàng)目的評價。3、完善環(huán)境與健康相關(guān)制度，健全環(huán)境公益訴訟制度，強(qiáng)化生態(tài)環(huán)境損害賠償和責(zé)任追究。強(qiáng)化司法系統(tǒng)追究環(huán)境違法行為的責(zé)任和能力。Recommendation 5: Integrate envl management institutions for efficiency and effectiveness. (i) Implement a comprehensive total emission control system for primary pollutants & CO2 emissions from fossil

57、 fuel consumption. Explore & implement regional, river-basin & sectoral total emission control systems based on each regions envl carrying capacity. (ii) Develop laws & regulations for an emission permit system. Cover all pollution discharging entities. Reform environmental impact assessment (EIA) s

58、ystem to achieve more effective integration with pollution permitting system & apply to strategies, plans & policies & cross-regional & river basin projects that may have significant ecological impacts. (iii) Improve environment & health related institutions, envl public interest litigation system &

59、 ecological environment damage compensation & accountability systems. Strengthen investigative efforts & penalties for envl matters involving criminal liability. Ensure sanctions reflect offense.四、主要政策建議 4. Policy Recommendations六、對國合會下一步研究課題的建議。1、健全國家環(huán)境治理體系、提升國家環(huán)境治理能力，特別是加強(qiáng)環(huán)境社會治理的研究；2、政府及有關(guān)部門環(huán)境績效第三方評估、企業(yè)環(huán)境信用第三方評估的制度建設(shè)研究；3、環(huán)境保護(hù)制度體系構(gòu)建及頂層設(shè)計(jì)研究；4、環(huán)境保護(hù)激勵政策和制度研究；5、重要污染防治制度（如環(huán)境影響評價、污染物排放總量控制、排污收費(fèi)制度）實(shí)施情況評估及制度改革研究；6、奧胡斯公約及環(huán)保公眾參與國際經(jīng)驗(yàn)的研究。Recommendation 6: Recommendations for further CCICED studies. (i) strengthening the envl governance system & governance capa