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Report of the State Council on Environmental Protection Work
[Effective]
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国务院关于环境保护工作情况的报告
[现行有效]
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【法宝引证码】
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Report of the State Council on Environmental Protection Work
Address to the 23rd Session of the Standing Committee of the 11th National People's Congress on October 25, 2011
By Zhou Shengxian, Minister of Environmental Protection
To the Standing Committee of the 11th National People's Congress:
Upon authorization of the State Council, this report on environmental protection work is made to the Standing Committee of the National People's Congress for deliberation.
| | 国务院关于环境保护工作情况的报告
--2011年10月25日在第十一届全国人民代表大会常务委员会第二十三次会议上
环境保护部部长 周生贤
全国人民代表大会常务委员会：
我受国务院委托，向全国人大常委会报告环境保护工作情况，请予审议。
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I. Positive progress made in national environmental protection
The CPC Central Committee and the State Council have always attached great importance to environmental protection and regarded environmental protection as a basic state policy for the implementation of the sustainable development strategy. During the “Eleventh Five-Year Plan” period, the State Council held the 6th National Environmental Protection Conference, which has placed environmental protection on a more prominent level, and with the approval of the National People's Congress, formed the Ministry of Environmental Protection. Using the emission reduction of major pollutants as a restricting indicator for social and economic development, the State Council has strategically called for building ecological civilization, rehabilitating rivers and lakes, promoting a historical transformation in environmental protection, and actively exploring new ways for environmental protection, in order to effect a series of major changes in China's environmental protection from recognition to practice. Positive progress has been made in environmental protection work.
| | 一、全国环境保护工作取得积极进展
党中央、国务院历来高度重视环境保护，把保护环境确立为基本国策，实施可持续发展战略。“十一五”期间，国务院召开第六次全国环境保护大会，把环境保护摆上更加重要的战略位置，经全国人大批准组建了环境保护部，将主要污染物减排作为经济社会发展的约束性指标，提出建设生态文明、让江河湖泊休养生息、推进环境保护历史性转变、积极探索环境保护新道路等战略思想，推动我国环境保护从认识到实践发生重要变化，环境保护工作取得积极进展。
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1. More-than-expected reduction of pollutant emissions. In 2010, the total volumes of chemical oxygen demand (COD) and sulfur dioxide discharge dropped by 12.45% and 14.29%, respectively, in comparison to 2005, which exceeds expectations. The State Council set up a Leading Group for Responding to Climate Changes, Energy Conservation and Emission Reduction and issued a comprehensive plan for energy conservation and emission reduction. Local governments at various levels and relevant departments divided up and executed emission reduction tasks, strengthened responsibility appraisal, and enhanced structural, engineering, and administrative emission reduction work. During the “Eleventh Five-year Plan” period, small thermal power plants with a total of electricity generating capacity of 76.83 million kilowatts were shut down; some outdated production capabilities were eliminated, including 120 million tons of iron, 72 million tons of steel, 370 million tons of cement, 45 million weight cases of sheet glass, and 11.3 million tons of paper; a total of 2,832 urban sewage disposal plants were built, with a total daily sewage disposal capability of 125 million tons; the sewage pipeline network increased by 60,000 km, and the sewage disposal ratio in urban areas of China was up from 52% to 77%; coal-fired desulfuration units with a total capacity of 578 million kilowatts were built, and their ratio rose from 14% to 86%. As shown in the surface water sections under the key state monitoring in 2010, the I-III Standard water sections accounted for 51.9%, and the V Standard water sections accounted for 20.8%, an increase of 14.4% and decrease of 6.6%, respectively, as against 2005; and the annual average densities of sulfur dioxide and inhalable particles in urban air dropped by 26.3% and 12%, respectively.
| | （一）超额完成污染物减排任务。2010年全国化学需氧量和二氧化硫排放总量比2005年分别下降12.45％和14.29％，超额完成减排任务。国务院成立应对气候变化及节能减排工作领导小组，印发了节能减排综合性工作方案。地方各级政府和有关部门层层分解落实减排任务，强化责任考核，加大结构减排、工程减排、管理减排工作力度。“十一五”期间，全国累计关停小火电机组7683万千瓦，淘汰落后产能炼铁1.2亿吨、炼钢0.72亿吨、水泥3.7亿吨、平板玻璃4500万重量箱、造纸1130万吨；累计建成城镇污水处理厂2832座，污水日处理能力达到1.25亿吨，新增污水管网约6万公里，全国城市污水处理率由52％提高到77％；累计建成5.78亿千瓦燃煤脱硫机组，脱硫机组比例从14％提高到86％。2010年全国地表水国控监测断面中，Ⅰ-Ⅲ类水质断面比例为51.9％，劣Ⅴ类水质断面比例为20.8％，分别比2005年提高14.4个百分点、下降6.6个百分点；全国城市环境空气中二氧化硫、可吸入颗粒物的年均浓度分别下降26.3％和12％。
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2. Progress in promoting economic development model transformation. The State Council has issued the Decision on Implementing the Scientific Outlook on Development and Strengthening Environmental Protection, the “Eleventh Five-Year Plan” for the National Environmental Protection, the National Major Functional Zones Plan, and other documents, crystallizing that economic development must adhere to the environmental protection requirements. The catalogue of prohibited products for processing trade has been improved, export tax refunds for more than 200 types of products with high pollution or environmental risks were cancelled, and no new loans were provided for projects failing the requirements for energy conservation and environmental protection. The environmental impact assessments of major industry development strategies in five regions such as Bohai Rim and Chengdu-Chongqing region were completed. Strict environment impact assessment of construction projects was implemented by the adoption of such measures as “regional restriction” and “industry restriction,” and construction projects with “high pollution, high energy consumption, and resource-dependent” in a total amount of investment up to 3.2 trillion yuan were not granted approval. Pollution prevention and control in major industries went further, the environmental protection inspection and follow-up oversight of listed companies were reinforced, clean production was actively promoted, and circular economy was vigorously developed. In 2010, the national discharge intensities of the COD in the papermaking, chemical, and textile industries went down by 73.9%, 66.7%, and 50%, respectively, as compared to 2005; and the discharge intensities of sulfur dioxide in the electric power industry, manufacturing of non-metal mineral products, and ferrous metal smelting industry went down by 72.5%, 58.1%, and 50%, respectively, as compared to 2005.
| | （二）推动经济发展方式转变取得成效。国务院先后印发《关于落实科学发展观加强环境保护的决定》、《国家环境保护“十一五”规划》、《全国主体功能区规划》等，明确经济建设必须符合环境保护要求。完善加工贸易禁止类目录，取消对200余种高污染、高环境风险产品的出口退税，对不符合节能环保要求的项目不予新增贷款。完成环渤海、成渝等五大区域重点产业发展战略环境影响评价。严格建设项目环境影响评价，采取“区域限批”、“行业限批”等措施，拒批投资近3.2万亿元的“两高一资”等建设项目。深入推进重点工业行业污染防治，强化上市公司环保核查和后督查，积极推行清洁生产，大力发展循环经济。2010年，全国造纸、化工和纺织行业化学需氧量排放强度比2005年分别下降73.9％、66.7％和50％，电力、非金属矿物制品、黑色金属冶炼行业二氧化硫排放强度分别下降72.5％、58.1％和50％。
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3. Extensive implementation of rehabilitation of rivers and lakes. The General Office of the State Council published the Interim Measures for Assessing the Implementation of Special Plans for Water Pollution Prevention and Control in Key Drainage Basins and established a water quality evaluation system for trans-provincial water sections. The completion rate of special plans for water pollution prevention and control projects in key drainage basins was 87%, an increase of 22.8% from the “Tenth Five-year Plan” period, with a total of 138.9 billion yuan in cumulative investments. Increased protection was provided for drinking water sources, the rate of water meeting quality standards supplied in key cities went up to 84.8%, and the problem of unsafe drinking water for a rural population of 215 million has been solved. Marine environmental protection has been strengthened, and the Overall Plan for Protecting the Environment of Bohai Sea has been systematically promoted.
| | （三）全面推进江河湖泊休养生息。国务院办公厅转发重点流域水污染防治专项规划实施情况考核暂行办法，建立了跨省界断面水质考核制度。重点流域水污染防治专项规划项目完成率为87％，较“十五”期间提高22.8个百分点，累计完成投资1389亿元。加大饮用水水源保护力度，重点城市供水量水质达标率提高到84.8％，2.15亿农村人口饮水不安全问题得到解决。强化海洋环境保护，《渤海环境保护总体规划》全面推进。
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4. Exploration on establishing a joint prevention and control mechanism for air pollution. The General Office of the State Council published the Guiding Opinions on Promoting the Joint Prevention and Control of Air Pollution and Improving Regional Air Quality, as a result of which the quality of the environment during the Beijing Olympic Games, the Shanghai Expo, and the Guangzhou Asian Games was effectively guaranteed. Major clean energy projects, such as the “West-to-East” natural gas transmission project and “West-to-East” electricity transmission project, have been implemented. Compared to 2005, the increase of clean energy replaced over 110 million tons of standard coal. The switch of coal-fired boilers to clean energy has been extensively implemented, and the development of co-generation of thermoelectricity and central heating is encouraged. The total area under central heating across the nation reached approximately 3 billion m2. Strict control in environmental protection standards has been exercised over new types of vehicles, and subsidies have been provided to accelerate elimination of outdated vehicles. In 2010, the pollutant discharge of a single new vehicle in China was reduced by over 90% compared to that in 2000.
| | （四）探索建立大气污染联防联控机制。国务院办公厅转发了关于推进大气污染联防联控工作改善区域空气质量的指导意见，有效保障了北京奥运会、上海世博会和广州亚运会期间的环境质量。实施“西气东输”、“西电东送”等清洁能源重点工程，与2005年相比，新增清洁能源替代约1.1亿吨标准煤。全面开展燃煤锅炉清洁能源改造，鼓励发展热电联产、集中供热，全国集中供热面积逾30亿平方米。严格新车型环保标准控制，出台补贴政策加快老旧车辆淘汰。2010年我国新车的单车排污量比2000年下降90％以上。
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5. Intensively addressing prominent environmental issues related to people's livelihood such as heavy metal pollution. The State Council approved the “Twelfth Five-Year Plan” for the Comprehensive Prevention and Control of Heavy Metal Pollution and the Implementation Plan for the Heavy Metal Pollution Control in Xiangjiang Drainage Area. The General Office of the State Council published the Guiding Opinions on Strengthening the Heavy Metal Pollution Prevention and Control and determined five major industries and 138 major regions for prevention and control. Special funds for the prevention and control of heavy metal pollution in a total amount of 1.5 billion yuan were added by the Central Treasury to support the comprehensive prevention and control and the demonstration and promotion of new technologies in major regions for prevention and control. Within the central budget, 52.5 billion yuan was invested to support the construction of facilities for handling sewage and garbage in urban areas, which then brought along local investment of more than 300 billion yuan. The harmlessness treatment rate of urban garbage reached 72.4%, an increase of 20% against that at the end of the “Tenth Five-year Plan” period. The environmental administration over urban noise has been strengthened. The business licensing, multi-document transfer and other systems for hazardous wastes have been practiced. A nationwide survey on persistent organic pollutants was conducted.
| | （五）集中整治重金属污染等关系民生的突出环境问题。国务院批准了《重金属污染综合防治“十二五”规划》和《湘江流域重金属污染治理实施方案》，国务院办公厅转发了关于加强重金属污染防治工作的指导意见，确定了5个重点防控行业和138个重点防控区。中央财政增设重金属污染防治专项，2010年下达资金15亿元，支持重点防控区综合防治、新技术示范和推广。安排中央预算内投资525亿元支持城镇污水、垃圾处理设施建设项目，带动地方投资3000多亿元，城市垃圾无害化处理率达72.4％，比“十五”末提高20个百分点。加强城市噪声环境监督管理。推行危险废物经营许可、转移联单等制度。开展了全国持久性有机污染物调查。
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6. Continuously strengthened ecological protection and rural environmental protection. The State Council established the National Committee for Biodiversity Protection and approved the China Biodiversity Conservation Strategy and Action Plan (2011-2030). The General Office of the State Council issued the Opinions on Strengthening Rural Environmental Protection and the Notice on the Effective Administration of Natural Reserves. The total area of comprehensive control of soil and water loss across the nation reached 230,000 square km2, forestation in a total of 25.29 million km2 was completed, and the forest coverage rate rose to 20.36%. A total of 2,588 natural reserves have been established across China, accounting for 14.9% of the territory of China. A marine ecological recovery project in coastal areas has been implemented. The Central Treasury arranged 4 billion yuan for implementing the policies of “using rewards to promote treatment and replace subsidies” for rural environmental protection, and over 6,600 towns and villages were therefore supported in their comprehensive control of rural environmental pollution and model ecological construction. It also helped generate local investments of over 8 billion yuan, allowing a rural population of 24 million to benefit directly from this program. The construction of ecological and organic agriculture has been boosted, the clean agricultural production technologies have been popularized, and the implementation of a pilot program of soil measurement, formula preparation and fertilization has led to the reduction of 5.8 million tons of unreasonable fertilization. A national survey on the status quo of soil pollution has been preliminarily completed.
．．．．．． | | （六）继续强化生态保护和农村环境保护。国务院成立中国生物多样性保护国家委员会，批准了《中国生物多样性保护战略与行动计划（2011-2030）》；国务院办公厅印发了《关于加强农村环境保护工作的意见》、《关于做好自然保护区管理有关工作的通知》。全国综合治理水土流失面积23万平方公里，完成造林2529万公顷，森林覆盖率达到20.36％。全国已建立各种自然保护区2588个，占国土面积的14.9％。实施了沿海地区海洋生态修复工程。中央财政安排40亿元实施农村环境保护“以奖促治、以奖代补”，支持6600多个村镇开展农村环境综合整治和生态示范建设，带动地方投入资金80多亿元，2400多万农村人口直接受益。推进生态农业和有机农业建设，推广农业清洁生产技术，开展测土配方施
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