中国区域污染控制面临的挑战教材

ThechallengesinChina’sregionalpollutioncontrolpolicies中国区域污染控制面临的挑战JimingHaoSchoolofEnvironment,TsinghuaUniversity郝吉明清华大学环境学院ContentsHistoricalreview/历史回顾Challenges/面临挑战Foreignexperiences/国外经验Recommendations/对策建议Historicalreview/历史回顾YRDJing-jin-jiPRDDuring2008-2010,ChinainitiatedtheregionaljointcontrolpoliciesintheregionsofJing-jin-ji,YRD,andPRDtoensuretheairqualityduringtheOlympicGames,theWorldEXPO,andtheAsianGames.ForAPEC2014.2008-2010年，为保障北京奥运会、上海世博会、广州亚运会为期间的空气质量，我国开始在京津冀、长三角、珠三角开展区域联防联控试点.2014APEC空气质量保障.Historicalreview/历史回顾ThreeRegions+10city-clusters三区十群

In2010,theStateCouncilissueda“guidelinesofpromotingregionaljointpreventionandcontrolpoliciesandimprovingregionalairquality”.2010年，国务院办公厅发布《关于推进大气污染联防联控工作改善区域空气质量指导意见》；In2012,MEPissued“The12thFive-YearPlanforAirPollutionPreventionandControlinKeyRegions”;thetargetregionsforregionaljointcontrolwereextendedto“threeregionsand10city-clusters”.2012年，环保部发布《重点区域大气污染防治“十二五”规划》；联防联控范围扩大到“三区十群”京津冀长三角珠三角辽宁中部山东半岛海峡西岸长株潭成渝乌鲁木齐武汉及周边山西中北部甘宁陕西关中ContentsHistoricalreview/历史回顾Challenges/面临挑战Foreignexperiences/国外经验Recommendations/对策建议BothsatelliteandsurfaceobservationsindicatethattheregionswithhighPM2.5concentrationsinJingjinji,YRD,andCentralChinahaveinterconnectedwitheachother;thispatternisconsistentwiththespatialdistributionofemissionintensity.地面观测和卫星观测数据都表明，京津冀、长三角与华中的PM2.5高浓度区已相互连接，并呈现向周边区域辐射态势，这与污染物排放强度的分布规律一致Challenge1:Needtodesignateairpollutioncontrolregions挑战1：需要进行科学的大气污染防治区划AerosolOpticalDepth(AOD)observedbyMODISMODIS卫星观测的光学厚度AnnualaveragePM2.5conc.in20132013年PM2.5年均浓度PM2.5emissionintensity/PM2.5排放强度OurstudyindicatesthatthesurroundingareasofJing-jin-ji(Shandong,Henan,Shanxietc.)contributeabout25%and45%toPM2.5andSNAconcentrationsintheJing-jin-jiregion,respectively.京津冀的周边省份（山东、河南、山西等）对京津冀PM2.5和SNA的贡献分别达到25%和45%左右ContributionofemissionsineachprovincetotheconcentrationsofPM2.5,primaryPM2.5,andSNAintheJing-jin-jiregion各省排放对京津冀PM2.5、一次PM2.5和SNA的贡献Challenge1:Needtodesignateairpollutioncontrolregions挑战1：需要进行科学的大气污染防治区划PM2.5PrimaryPM2.5SNAChallenge2:Establishairqualitytargetedpollutioncontrolmechanism挑战2：建立以空气质量改善为目标的大气环境管理模式ThegovernmentalperformancehasbeenevaluatedmainlybasedonthereductionintotalemissionsofSO2andNOX;theimprovementofairqualityhasbeenneglectedbylocalgovernment.长期以来实施以SO2和NOx两项污染物总量减排为主的政府绩效考核，使地方政府忽视空气质量改善；Localgovernmentdoesnotpayattentiontotheadmittance,monitoring,andcontroloftheemissionsourcesofPMandVOCs,whichgoesagainstcost-effectivecontrolmeasurestoimproveregionalairquality.地方政府往往在PM、VOCs等非总量控制因子的准入、控制、监测、监管、考核等方面不重视、不统一，这不利于选择经济有效的措施改善区域空气质量Challenge3:Coordinationmechanismofregionalairpollutioncontrol挑战3：进一步完善区域联防联控机制Chinahasdevelopedaunifiedenvironmentaldecision-makingworkingmechanisminthreekeyregions.However,thecooperationhasfocusedonthereliefofheavy-pollutionepisode.Routinepollutioncontrolandsupervisionstillneedtobestrengthened.我国已建立由北京、上海和广东牵头的京津冀及周边地区、长三角区域、珠三角区域大气污染防治协作机制，但目前开展最多的是重污染天气预警与应急联动，常态化污染控制和监督管理有待加强Formalrulesandproceduresfortheinter-regionalcoordinationarelacking.缺少区域协作的内容和流程的规范和长效机制。例如会商范围的确定、会商内容的确定、会商意见的处理等具体环节，亟待予以规范Theenvironmentalinformationsharingisfarfromenough.Regionaljointinspectionsandlawenforcementhavejuststarted.目前信息共享程度还远远不足，协作范围还十分有限；重大项目的建设鲜有经过区域协商和论证；区域联合监督联合执法还处于探索阶段Challenge4:Establishscientificdecision-makingsystem挑战4：需要空气质量综合决策系统支撑Themajorsourcesandtransporttrajectoriesdiffergreatlyindifferentheavy-pollutionepisodes.Therefore,cost-effectiveemergencyresponsemeasuresshouldbedevelopedaccordingtoairqualityforecastsandsourceapportionmentresults.不同污染过程的污染来源和传输特征存在显著差异，因此，依据空气质量预报和污染来源解析的结果制定应急措施，才能以最小的成本获得最大的环境效益。Challenge5:Neednationallong-termairpollutioncontrolplan挑战5：尽快制定国家层面的中长期规划Asofnow,Chinaonlyreleasedshort-termemissionreductiontargetsandairqualitytargets.目前，我国只制定了短期（至2015年或2017年）污染物减排目标或空气质量目标Localgovernmentsaimattheachievementofshort-termtargets,insteadofachievinglong-termreductionsofmultiplepollutantsinacost-effectivemanner.这使得各省市只着眼于眼前的工作任务，不利于着眼长远，统筹安排多层次（产业结构调整、能源结构调整、末端治理）和多污染物减排措施，不利于采取经济有效的方式控制大气污染2017CleanAirActionPlanControlmeasuresforSO2,NOX,PM2.5,andpreliminarymeasuresforVOC2020Targets?Measures?2030Targets?Measures?Optimalcontrolstrategy?201512thFive-YearPlanControlmeasuresforSO2andNOXChallenge6:Needathoroughperformanceevaluationsystem挑战6：建立完善的大气污染防治绩效评估体系Itisimperativetoestablishathoroughperformanceappraisalsystemforscientificevaluationoftheimplementationprogressandenvironmentalandeconomicbenefitsoftheregionalcontrolpolicies.亟需建立完善的控制绩效评估体系来科学评估区域污染控制措施实施进展和环境、经济效益区域污染控制政策的预评估Pre-evaluation政策实施进展的追踪评估Dynamic/Trackevaluation/PostevaluationEvaluationofemissionreduction政策措施MeasuresRecommendationforimprovementofcontrolmeasuresEvaluationofAQimprovementProgressofairpollutioncontrolIfnotmeetingthegoal,why?AQreachestarget?Implementtheairpollutioncontroltask?StrengthencontrolmeasuresRecommendationsonmeasurestoimplementEvaluationofAQimprovementContentsHistoricalreview/历史回顾Challenges/面临挑战Foreignexperiences/国外经验Recommendations/对策建议KeytoArrowsLinkageofUpwindtoDownwindforOzoneLinkageofUpwindtoDownwindforAnnual

PM2.5LinkageofUpwindtoDownwindfor24hourPM2.5ExampleofInterstateAirPollutionImpacts:StatesProjectedtoHaveSignificantAirQualityImpactsonOtherStatesin2012WithoutCross-StateRuleU.S.:Cross-StateAirPollutionRule(CSAPR,2011)美国：跨州空气污染法令(2011)Theoreticalbasis:CloseinteractionsamongthestatesinEasternU.S.理论基础：美国东部各州之间密切的相互影响CountiesViolatingAirQualityStandardsintheCross-StateAirPollutionRuleRegion(basedon2003-07airqualitymonitoringdata)空气质量不达标的县（基于2003-2007年的监测数据）CountiesinredareviolatingoneormoreofthefollowingNAAQS:•1997PM2.5(15/65ug/m3)•1997ozone(.08ppm)•2006PM2.5(15/35ug/m3)CountieswithViolatingMonitors(207)NonattainmentintheCSAPRRegion(2003-07data)法令实施区域的不达标情况（基于2003-2007年监测数据）CountieswithViolatingMonitors(2)CountieswithMaintenanceProblems(6)CountieswithMonitorsProjectedtoHaveOzoneandPM2.5AirQualityProblemsin2014WiththeCross-StateAirPollutionRule跨州空气污染法令实施后，预计2014年臭氧或PM2.5不达标的县ProjectedImpactsofCSAPRonNonattainmentin2014预测的2014年法令实施区域的不达标情况The

ConventiononLong-rangeTransboundaryAirPollution

(CLRTAP)wascreatedin1979,andwasextendedby

eightprotocols

thatidentifyspecificmeasurestobetakenbyPartiestocuttheiremissionsofairpollutants.

远距离跨界空气污染协议最早在1979年设立，在这之后，先后有8个议定书对协议的内容进行了拓展，这些议定书规定了各国污染物减排的目标或采取的措施EU:The

ConventiononLong-rangeTransboundaryAirPollution欧盟：远距离跨界空气污染协议及其议定书ThelatestupdateswerereleasedinMay,2012,settingnewemissionceilingofallEUcountriesby2020最新的协议是2012年5月发布的哥德堡议定书修订案，该修订案规定了2020年欧盟各国的排放量限值RevisionoftheGothenburgProtocol(2012)哥德堡议定书修订案（2012）ContentsHistoricalreview/历史回顾Challenges/面临挑战Foreignexperiences/国外经验Recommendations/对策建议Suggestion1:Airpollutioncontrolregions建议1：完善大气环境管理分区辽宁中部成渝乌鲁木齐甘宁中国东部控制区WeproposetodesignateEasternChinaasasingleadministrativeregion.Theairqualitytargetandprovincialemissionreductiontargetsshouldbedecidedbythecentralgovernment.中国东部地区污染呈现出连片的特征，省间相互影响显著，因此，建议将整个东部划归为一个污染控制区，在国家层面上制定各省空气质量目标和污染物减排量目标。其中污染严重的城市，应在此基础上制定更严格的本地污染物减排目标。Theheavy-pollutionareasinNortheastChinaandCentral-WesternChinashouldbedesignatedasindividualadministrativeregions东北地区和中西部地区重污染区域比较分散，区域间相互影响较小，因此建议将四川盆地、辽宁中部、甘宁、新疆乌鲁木齐等污染较重的区域分别划为单独的污染控制区，制定针对性的空气质量目标和污染物减排目标Suggestion2:Airqualityorientedmanagementmechanism建议2：完善以空气质量改善为目标的管理模式AnevaluationsystemforofficialsbasedontheattainmentofairqualitystandardsshouldbeexplicitlydocumentedintheLawonthePreventionandControlofAtmosphericPollution.在《大气污染防治法》中明确规定建立以城市空气质量达标为核心的大气环境保护目标责任制和考核评价制度WeproposetosetatargetthatallmajorcitiesinChinashouldattainthePM2.5standardby2030.建议将全国城市在2030年之前实现PM2.5达标作为约束性指标Theleadingofficialofthecentralgovernmentisresponsibleforthenationwideattainmentofairqualitystandards;localofficialsareresponsibleforthelocalattainmentofairqualitystandards.建立责任追究制度，中央政府对全国空气质量达标情况负责，地方政府对本地空气质量达标情况负责Suggestion3:Improvetheregionalcoordinationmechanism建议3：深化区域联防联控工作机制Establishaclear-cut,unifiedandintegratedregionalairpollutioncontrolandmanagementmechanism.建立明确、统一、完整的区域大气污染防治管理机制建议国务院制定、出台关于区域大气污染防治重大问题的议事规则与决策程序，确保决策的规范化、程序化、制度化Weshouldestablishaconsultationmechanismforregionalenvironmentalinfluenceassessment(EIA)建立区域环境影响评价会商机制建设工业园区及高污染工业企业，其环境影响评价中必须包含对区域空气质量影响的内容，且其应由可能受影响的相关行政区进行集体会商Weshouldgreatlystrengthentheenvironmentalinformationsharing.深化环境信息共享扩大环境信息共享的范围和内容，尤其要推动区域空气质量监测、污染源排放及重点污染源、气象数据、新建项目环境影响评价业务和支撑数据等关键信息的共享Suggestion4:Establishscientificdecision-makingsystem建议4：建立空气质量综合决策支持系统评估空气污染控制/排放削减策略的经济成本BenMAP-CESMAT-CECoST-CERSM-VAT/CMAQ评估空气质量改善减少的健康损失及其经济价值提供排放控制情景的实时空气质量浓度响应为未达标区域的PM2.5

和O3

提供达标评估分析PleasevisitABaCASwebsiteformoreinformation:/Suggestion5:Formulatenationwidemediumandlongtermworkplans建议5：制定国家区域污染控制中长期规划Thecentralgovernmentshouldformulatethemediumandlongtermairqualitytargets,andbasedonthetargets,decidetheprovincialemissionreductiontargetsformultiplepollutants.由国家环保部门组织制定各污染控制区分阶段空气质量目标，在此基础上，制定分省分阶段的多污染物减排目标Eachprovinceshoulddeveloptheirowncontrolstrategiestoachievetheemissionreductiontargets.Morestringentpoliciesshouldbeimplementedinheavy-pollutioncities.各省自行确定污染物减排目标的省内分配方案和实现污染物减排目标的具体控制措施；对于污染严重的城市，应制定更严格的本地污染物减排目标BeijingTianjinHebei201220172030ShandongShanxiInnerMongolia2020Suggestion6