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“‘無廢(fei)(fei)城(cheng)市(shi)’到(dao)底怎么建?要解(jie)決‘城(cheng)市(shi)痛點(dian)’、‘固廢(fei)(fei)管(guan)理難點(dian)’、‘垃(la)圾圍城(cheng)’、‘鄰避效(xiao)應(ying)’等諸多難點(dian)，每個(ge)城(cheng)市(shi)的(de)特(te)點(dian)和(he)問(wen)題都不一樣。”生(sheng)態(tai)環(huan)境(jing)部環(huan)境(jing)規(gui)劃(hua)院環(huan)保產(chan)業研究(jiu)室(shi)主任(ren)高(gao)級(ji)工程(cheng)師、E20 研究(jiu)院特(te)約研究(jiu)員趙云(yun)皓(hao)表示。趙云(yun)皓(hao)參(can)與了生(sheng)態(tai)環(huan)境(jing)部 “無廢(fei)(fei)城(cheng)市(shi)” 建設試點(dian)的(de)相(xiang)關研究(jiu)工作，在“2019有機固廢(fei)(fei)資源化論壇(tan)”上，她(ta)向與會(hui)來賓分享了在我國(guo)“無廢(fei)(fei)城(cheng)市(shi)”建設規(gui)劃(hua)、具體行動實施等多方面深入的(de)思考。

到底什么(me)是(shi)“無廢城(cheng)市”?

到底什么是(shi)“無(wu)廢城市”?趙(zhao)云皓表示，2018年12月(yue)，國務院(yuan)辦公廳印發(fa)的(de)《“無(wu)廢城市”建(jian)(jian)設試點工作方(fang)案》中明確(que)描述(shu)：“無(wu)廢城市”建(jian)(jian)設以“五大發(fa)展(zhan)理念”為引領，形成綠色發(fa)展(zhan)和生活方(fang)式，持續推(tui)進(jin)固體廢物源(yuan)頭減(jian)量和資源(yuan)化利用，將固體廢物環境影響“降至最低”。近(jin)期目(mu)標是(shi)“不斷(duan)減(jian)少”。

“無廢城市”管理(li)理(li)念

趙云(yun)皓介(jie)紹，截(jie)止2018年底，全球有(you)23個城市聯合發(fa)布“建立無(wu)廢(fei)城市”宣言，其中8個城市明確了技術路線(xian)、建設方案(an)。

全(quan)球范圍明確提出“無(wu)廢城市(shi)”建設方案的8個城市(shi)

“無廢(fei)試點城市(shi)”建設的四大體系

趙云皓介紹(shao)， 2017年(nian)(nian)(nian)10月(yue)(yue)(yue)，黨的(de)“十九大”報告(gao)提出(chu)：“加(jia)強固體(ti)廢(fei)(fei)(fei)(fei)(fei)棄物和(he)垃圾處置”改革(ge)任務(wu);“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)”建(jian)(jian)(jian)設(she)試(shi)(shi)點(dian)(dian)(dian)工(gong)作(zuo)列入中(zhong)央(yang)全(quan)面深化(hua)改革(ge)領導小組(zu)2018年(nian)(nian)(nian)工(gong)作(zuo)要點(dian)(dian)(dian)。2018年(nian)(nian)(nian)6月(yue)(yue)(yue)，中(zhong)共中(zhong)央(yang) 國(guo)務(wu)院《關(guan)于全(quan)面加(jia)強生態(tai)環境(jing)保護堅決(jue)打(da)好(hao)(hao)污染防治攻(gong)堅戰的(de)意(yi)見》(中(zhong)發(fa)〔2018〕17號)提出(chu)開展“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)”試(shi)(shi)點(dian)(dian)(dian)。2018年(nian)(nian)(nian)12月(yue)(yue)(yue)，國(guo)務(wu)院辦(ban)公廳(ting)印(yin)(yin)發(fa)《“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)”建(jian)(jian)(jian)設(she)試(shi)(shi)點(dian)(dian)(dian)工(gong)作(zuo)方(fang)(fang)案》(國(guo)辦(ban)發(fa)〔2018〕128號)，要求(qiu)探(tan)索建(jian)(jian)(jian)立“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)”建(jian)(jian)(jian)設(she)綜(zong)合管理(li)制(zhi)度和(he)技術體(ti)系，形成(cheng)一批(pi)可(ke)復制(zhi)、可(ke)推(tui)(tui)(tui)廣的(de)“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)”建(jian)(jian)(jian)設(she)示范(fan)模式，為(wei)推(tui)(tui)(tui)動建(jian)(jian)(jian)設(she)“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)社(she)會”奠定(ding)良(liang)好(hao)(hao)基礎。2019年(nian)(nian)(nian)4月(yue)(yue)(yue)，生態(tai)環境(jing)部(bu)印(yin)(yin)發(fa)《“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)”建(jian)(jian)(jian)設(she)試(shi)(shi)點(dian)(dian)(dian)推(tui)(tui)(tui)進工(gong)作(zuo)方(fang)(fang)案》(固體(ti)函(han)〔2019〕12號)，遴選11+5個城(cheng)(cheng)(cheng)(cheng)市(shi)和(he)地區作(zuo)為(wei)“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)”建(jian)(jian)(jian)設(she)試(shi)(shi)點(dian)(dian)(dian)，要求(qiu)2019年(nian)(nian)(nian)6月(yue)(yue)(yue)試(shi)(shi)點(dian)(dian)(dian)城(cheng)(cheng)(cheng)(cheng)市(shi)編(bian)制(zhi)印(yin)(yin)發(fa)“無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)”建(jian)(jian)(jian)設(she)試(shi)(shi)點(dian)(dian)(dian)實施方(fang)(fang)案，試(shi)(shi)點(dian)(dian)(dian)期(qi)限2年(nian)(nian)(nian)。，在兩年(nian)(nian)(nian)期(qi)限內，要求(qiu)探(tan)索建(jian)(jian)(jian)立‘無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)’建(jian)(jian)(jian)設(she)綜(zong)合管理(li)制(zhi)度和(he)技術體(ti)系，形成(cheng)一批(pi)可(ke)復制(zhi)、可(ke)推(tui)(tui)(tui)廣的(de)‘無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)城(cheng)(cheng)(cheng)(cheng)市(shi)’建(jian)(jian)(jian)設(she)示范(fan)模式，為(wei)推(tui)(tui)(tui)動建(jian)(jian)(jian)設(she)‘無(wu)(wu)(wu)(wu)廢(fei)(fei)(fei)(fei)(fei)社(she)會’奠定(ding)良(liang)好(hao)(hao)基礎。”

11+5個無廢試點城市和地區

試(shi)(shi)點(dian)(dian)(dian)工(gong)作要(yao)求16個試(shi)(shi)點(dian)(dian)(dian)城(cheng)市(shi)和(he)地區結(jie)合自身特點(dian)(dian)(dian)，按照“一城(cheng)一策、各有重點(dian)(dian)(dian)”的原則制(zhi)定實施方案(an)。依據《“無廢(fei)(fei)(fei)城(cheng)市(shi)”建設指標(biao)體(ti)系(xi)(xi)(xi)(試(shi)(shi)行(xing))》《“無廢(fei)(fei)(fei)城(cheng)市(shi)”建設試(shi)(shi)點(dian)(dian)(dian)實施方案(an)編制(zhi)指南》(環辦固體(ti)函[2019]467號)， “無廢(fei)(fei)(fei)城(cheng)市(shi)”建設試(shi)(shi)點(dian)(dian)(dian)目標(biao)指標(biao)59項，試(shi)(shi)點(dian)(dian)(dian)工(gong)作內容(rong)要(yao)求包(bao)括(kuo)大(da)宗工(gong)業固體(ti)廢(fei)(fei)(fei)物趨零增(zeng)長、主要(yao)農業廢(fei)(fei)(fei)棄(qi)物資源化利用(yong)、生活垃圾和(he)建筑垃圾減(jian)量與(yu)利用(yong)、危險廢(fei)(fei)(fei)物全過程管(guan)理與(yu)安全管(guan)控、固體(ti)廢(fei)(fei)(fei)物精細(xi)化綜合管(guan)理、固廢(fei)(fei)(fei)產業融合發(fa)展等重點(dian)(dian)(dian)任務，試(shi)(shi)點(dian)(dian)(dian)工(gong)作應重點(dian)(dian)(dian)加強制(zhi)度體(ti)系(xi)(xi)(xi)、技術(shu)體(ti)系(xi)(xi)(xi)、市(shi)場體(ti)系(xi)(xi)(xi)、監管(guan)體(ti)系(xi)(xi)(xi)四(si)大(da)體(ti)系(xi)(xi)(xi)的建設。

“無(wu)廢試點城市”建設的(de)四大體(ti)系

“無廢(fei)試點城市”建設

“無廢城(cheng)市”建設(she)四大(da)要點

“無(wu)廢(fei)(fei)(fei)城市”到底怎么建(jian)?在趙(zhao)云皓看(kan)來，建(jian)設(she)“無(wu)廢(fei)(fei)(fei)城市”的過程(cheng)是開放(fang)式且具有探索性的，“每(mei)個城市的情況不同(tong)，問題更不同(tong)，要(yao)解決‘城市痛點(dian)(dian)(dian)’、‘固廢(fei)(fei)(fei)管理(li)難(nan)(nan)點(dian)(dian)(dian)’、‘垃圾圍城’、‘鄰避效應(ying)’等難(nan)(nan)點(dian)(dian)(dian)，并且在探索過程(cheng)中積累經驗”。趙(zhao)云皓將建(jian)設(she)“無(wu)廢(fei)(fei)(fei)城市”方案和規劃提煉為四(si)大(da)要(yao)點(dian)(dian)(dian)：

要點一：融合

“無廢城市(shi)”建設一定要上(shang)升(sheng)到城市(shi)層面，與“城市(shi)體系”高度融(rong)合。

“無(wu)廢(fei)城市(shi)”建設要點：融合

1、要與(yu)城(cheng)市(shi)發(fa)(fa)展融合(he)。“無廢城(cheng)市(shi)”建設要與(yu)城(cheng)市(shi)發(fa)(fa)展融合(he)，趙云皓認為(wei)，

“不(bu)僅需要調(diao)(diao)查統(tong)計并追溯現有固體廢(fei)物產排情況，更要結合城(cheng)市發(fa)展(zhan)定位、涉固產業(ye)發(fa)展(zhan)方向(xiang)、農(nong)業(ye)種植(zhi)結構調(diao)(diao)整(zheng)、城(cheng)鎮化(hua)發(fa)展(zhan)趨勢、常住與流動(dong)人口變化(hua)情況等(deng)，識(shi)別今后一段(duan)時期固廢(fei)問題和管理的重點，實現‘系統(tong)化(hua)、精準化(hua)’施策。”

融合(he)一：城市(shi)發展

2、要與(yu)(yu)城(cheng)(cheng)市(shi)(shi)規劃(hua)(hua)融合。“無(wu)廢(fei)(fei)(fei)(fei)城(cheng)(cheng)市(shi)(shi)”建(jian)設(she)要與(yu)(yu)城(cheng)(cheng)市(shi)(shi)規劃(hua)(hua)高度融合。不(bu)僅要將“無(wu)廢(fei)(fei)(fei)(fei)城(cheng)(cheng)市(shi)(shi)”建(jian)設(she)的相(xiang)關舉(ju)措融入到城(cheng)(cheng)市(shi)(shi)總體規劃(hua)(hua)、各專項規劃(hua)(hua)、實施(shi)方案、工作計劃(hua)(hua)中，更(geng)要通過(guo)“無(wu)廢(fei)(fei)(fei)(fei)城(cheng)(cheng)市(shi)(shi)”建(jian)設(she)影響城(cheng)(cheng)市(shi)(shi)相(xiang)關規劃(hua)(hua)和工作計劃(hua)(hua)的制定與(yu)(yu)實施(shi)。例(li)如(ru)，城(cheng)(cheng)市(shi)(shi)規劃(hua)(hua)要充分考慮產(chan)生(sheng)大(da)宗固體廢(fei)(fei)(fei)(fei)物的工業園(yuan)區(qu)、資源循環產(chan)業園(yuan)、靜(jing)脈產(chan)業園(yuan)，危廢(fei)(fei)(fei)(fei)處(chu)理處(chu)置中心(xin)、以(yi)及水(shui)泥(ni)廠、磚廠等固廢(fei)(fei)(fei)(fei)消納場(chang)所(suo)的布(bu)局與(yu)(yu)選址，盡可能擴大(da)資源化與(yu)(yu)最(zui)終處(chu)置設(she)施(shi)覆蓋范圍、減少運輸(shu)半徑，使城(cheng)(cheng)市(shi)(shi)固體廢(fei)(fei)(fei)(fei)物得到充分安全(quan)的運輸(shu)與(yu)(yu)處(chu)置，降(jiang)低風險(xian)。

融合二(er)：城市規(gui)劃

3、要(yao)(yao)與(yu)城市(shi)(shi)(shi)建(jian)(jian)(jian)設(she)與(yu)運(yun)(yun)維(wei)融合(he)。“無(wu)廢城市(shi)(shi)(shi)”建(jian)(jian)(jian)設(she)要(yao)(yao)與(yu)城市(shi)(shi)(shi)建(jian)(jian)(jian)設(she)與(yu)運(yun)(yun)維(wei)相結(jie)合(he)，趙云皓(hao)指出，生活垃(la)圾、餐(can)廚垃(la)圾收集轉運(yun)(yun)與(yu)處理處置設(she)施(shi)等“無(wu)廢城市(shi)(shi)(shi)”設(she)施(shi)建(jian)(jian)(jian)設(she)項(xiang)目(mu)要(yao)(yao)作為城市(shi)(shi)(shi)基(ji)礎設(she)施(shi)建(jian)(jian)(jian)設(she)項(xiang)目(mu)予以推進(jin)，并(bing)充分考(kao)慮采取(qu)能(neng)夠有(you)效保(bao)障項(xiang)目(mu)可持續運(yun)(yun)營(ying)的運(yun)(yun)作模式(shi)(shi)，防范項(xiang)目(mu)風險，避免出現“爛尾”。可根據項(xiang)目(mu)自身特(te)點采取(qu)特(te)許(xu)經營(ying)、政府和社會資本(ben)合(he)作、委(wei)托運(yun)(yun)營(ying)等模式(shi)(shi)，但無(wu)論哪種方式(shi)(shi)，均需充分考(kao)慮項(xiang)目(mu)的投(tou)資回報(bao)機(ji)制，確(que)保(bao)社會資本(ben)合(he)理收益;并(bing)建(jian)(jian)(jian)立按效付(fu)費(fei)和監(jian)督考(kao)核機(ji)制，強化項(xiang)目(mu)運(yun)(yun)營(ying)維(wei)護效果的重要(yao)(yao)性。

融合三(san)：城市建設(she)與運維

4、要(yao)(yao)與(yu)城(cheng)市管理(li)(li)與(yu)治(zhi)理(li)(li)融合。“無廢城(cheng)市”建設要(yao)(yao)與(yu)城(cheng)市管理(li)(li)與(yu)治(zhi)理(li)(li)融合，

趙云皓認為，“無(wu)廢城市(shi)”建(jian)設(she)不(bu)單(dan)單(dan)是固(gu)體廢物的(de)(de)管(guan)(guan)理能力建(jian)設(she)，更是政(zheng)府(fu)城市(shi)管(guan)(guan)理和多(duo)元(yuan)參與(yu)城市(shi)治理的(de)(de)新(xin)策略。“無(wu)廢城市(shi)”建(jian)設(she)應建(jian)立以政(zheng)府(fu)主(zhu)要負責(ze)人為主(zhu)要領導的(de)(de)工(gong)作(zuo)推進組，制定(ding)可操(cao)作(zuo)的(de)(de)、分部門的(de)(de)、實施(shi)路(lu)線清晰(xi)的(de)(de)整(zheng)體實施(shi)方案，生(sheng)態環境、工(gong)信(xin)、發改、住建(jian)、城管(guan)(guan)等各(ge)部門分工(gong)協作(zuo)、聯動配合。同時“無(wu)廢城市(shi)”建(jian)設(she)需要多(duo)元(yuan)參與(yu)，要創新(xin)機制體制，促進政(zheng)府(fu)、企(qi)事業、社(she)區(qu)居民、村集(ji)體、農戶圍繞“無(wu)廢城市(shi)”建(jian)設(she)同一個(ge)目(mu)標，共同奮斗。

融合四(si)：城市管理與治理

要點二、協同

城市(shi)固(gu)體廢物(wu)來源(yuan)廣泛，處(chu)(chu)理處(chu)(chu)置(zhi)(zhi)的統(tong)包括源(yuan)頭減量、分類(lei)回收、收集運輸、資源(yuan)化(hua)利用、無(wu)害化(hua)處(chu)(chu)置(zhi)(zhi)等諸多環(huan)節(jie)，各個環(huan)節(jie)相互銜接、分工明確，共(gong)同(tong)(tong)組成(cheng)了一個復(fu)雜系(xi)統(tong)，“無(wu)廢城市(shi)”建(jian)設(she)主要(yao)的技術路線之一是系(xi)統(tong)協(xie)(xie)(xie)同(tong)(tong)治理。系(xi)統(tong)協(xie)(xie)(xie)同(tong)(tong)主要(yao)體現在相同(tong)(tong)屬性的固(gu)體廢物(wu)協(xie)(xie)(xie)同(tong)(tong)處(chu)(chu)置(zhi)(zhi)、企業內(nei)部或者企業間上下游(you)協(xie)(xie)(xie)同(tong)(tong)利用、區域內(nei)區域間協(xie)(xie)(xie)同(tong)(tong)消(xiao)納、處(chu)(chu)置(zhi)(zhi)設(she)施(shi)間的協(xie)(xie)(xie)同(tong)(tong)共(gong)生等。

“無廢(fei)城市(shi)”建設要點：協同

趙(zhao)云皓認為(wei)，要(yao)實現“協同”，具體從四個層次考慮：

1、相(xiang)同屬性協同處置。例如農業廢棄物(wu)協同處置方面，對于(yu)偏遠(yuan)地(di)(di)區及量大面散農村(cun)地(di)(di)區，建(jian)立(li)基于(yu)田間(jian)地(di)(di)頭的分布式農業廢棄物(wu)聚集(ji)點，將離田秸稈，農村(cun)廁所糞池糞污(wu)、分散式畜禽養殖糞污(wu)集(ji)中，統(tong)一(yi)收儲運，降低成(cheng)本，并推(tui)動大型多物(wu)料協同沼氣工程建(jian)設，協同解決農村(cun)生活燃氣和冬季供暖。

2、上下游(you)協同利(li)(li)用(yong)。例如工業(ye)(ye)(ye)(ye)大(da)宗固(gu)體廢(fei)物協同利(li)(li)用(yong)方面，構建、延伸綜(zong)(zong)合(he)(he)利(li)(li)用(yong)產(chan)業(ye)(ye)(ye)(ye)鏈，實現(xian)原(yuan)生產(chan)業(ye)(ye)(ye)(ye)與綜(zong)(zong)合(he)(he)利(li)(li)用(yong)產(chan)業(ye)(ye)(ye)(ye)的跨產(chan)業(ye)(ye)(ye)(ye)協同。產(chan)廢(fei)企業(ye)(ye)(ye)(ye)通過技改(gai)升級或(huo)者(zhe)和(he)綜(zong)(zong)合(he)(he)利(li)(li)用(yong)企業(ye)(ye)(ye)(ye)合(he)(he)作(zuo)，延伸產(chan)業(ye)(ye)(ye)(ye)鏈，綜(zong)(zong)合(he)(he)利(li)(li)用(yong)固(gu)體廢(fei)物，最大(da)限(xian)度攫取(qu)固(gu)體廢(fei)物的資源(yuan)價值。如將(jiang)煤(mei)矸(gan)石用(yong)于(yu)(yu)循環流化(hua)床發電(dian)(dian)和(he)熱電(dian)(dian)聯(lian)產(chan)，生產(chan)建筑材料，回(hui)收(shou)其中金屬資源(yuan)或(huo)用(yong)于(yu)(yu)井(jing)下充填，實現(xian)煤(mei)矸(gan)石綜(zong)(zong)合(he)(he)利(li)(li)用(yong)。

3、區(qu)域(yu)內區(qu)域(yu)間協(xie)(xie)同(tong)消納(na)。例如危(wei)險廢(fei)物(wu)協(xie)(xie)同(tong)處(chu)置(zhi)方面，除了工業窯爐協(xie)(xie)同(tong)處(chu)置(zhi)危(wei)險廢(fei)物(wu)外(wai)，一是(shi)探索(suo)城市群(qun)間打(da)破市域(yu)限制(zhi)，建立危(wei)險廢(fei)物(wu)處(chu)置(zhi)的技術協(xie)(xie)同(tong)和(he)互(hu)為應(ying)急(ji)的互(hu)惠共贏機制(zhi)。二是(shi)深化危(wei)險廢(fei)物(wu)經(jing)營(ying)許可(ke)管理制(zhi)度，探索(suo)企業自(zi)建危(wei)險廢(fei)物(wu)處(chu)理處(chu)置(zhi)設施能力有所富余的條件(jian)下，接收本市同(tong)類型企業產生(sheng)的危(wei)險廢(fei)物(wu)。

4、處置設(she)施協同共生。例如(ru)城市生活(huo)、餐廚、污(wu)泥等垃(la)圾處理處置方(fang)(fang)面，通(tong)過(guo)共享基礎設(she)施和固廢信息系統，得(de)出物質(zhi)代謝過(guo)程的物料平衡、能源平衡，準確科學規(gui)劃(hua)和產能匹配。通(tong)過(guo)靜(jing)脈產業園模(mo)式可以將餐廚垃(la)圾、市政污(wu)泥、禽(qin)畜糞便等協同處置，形成規(gui)模(mo)化效(xiao)應，并方(fang)(fang)便政府有(you)效(xiao)監督控(kong)制(zhi)和節約用地。

實現(xian)“協同”的(de)四(si)個層次

要點三：創新