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4.2推進(jin)統一(yi)生態環境(jing)監管執法

“十四五”時(shi)期，統(tong)(tong)(tong)一(yi)(yi)生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)管(guan)執(zhi)法(fa)(fa)(fa)(fa)需要強(qiang)化(hua)(hua)落地，強(qiang)化(hua)(hua)統(tong)(tong)(tong)一(yi)(yi)實(shi)施、強(qiang)化(hua)(hua)能力建(jian)(jian)(jian)設(she)，進一(yi)(yi)步(bu)提(ti)升生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)管(guan)效(xiao)果、效(xiao)率和(he)(he)效(xiao)能。一(yi)(yi)是(shi)強(qiang)化(hua)(hua)區域(yu)(yu)流域(yu)(yu)海域(yu)(yu)監(jian)(jian)(jian)(jian)(jian)管(guan)，加(jia)強(qiang)自然(ran)(ran)保(bao)(bao)護(hu)地監(jian)(jian)(jian)(jian)(jian)管(guan)。抓(zhua)好入河排污(wu)口設(she)置審查(cha)監(jian)(jian)(jian)(jian)(jian)督(du)、排海污(wu)染物總量控制(zhi)(zhi)(zhi)(zhi)(zhi)和(he)(he)陸源污(wu)染物排海監(jian)(jian)(jian)(jian)(jian)督(du)，強(qiang)化(hua)(hua)對圍填(tian)海、海洋油氣勘探開發(fa)、海洋傾廢、海洋工程建(jian)(jian)(jian)設(she)項目生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)影(ying)響的監(jian)(jian)(jian)(jian)(jian)督(du)管(guan)理。建(jian)(jian)(jian)立(li)常態(tai)化(hua)(hua)自然(ran)(ran)保(bao)(bao)護(hu)地監(jian)(jian)(jian)(jian)(jian)督(du)檢查(cha)機(ji)(ji)制(zhi)(zhi)(zhi)(zhi)(zhi)，完(wan)善地方自然(ran)(ran)保(bao)(bao)護(hu)地生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)管(guan)體(ti)系。二是(shi)推(tui)進實(shi)現統(tong)(tong)(tong)一(yi)(yi)生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)執(zhi)法(fa)(fa)(fa)(fa)。整合不同(tong)(tong)領域(yu)(yu)、不同(tong)(tong)部門的監(jian)(jian)(jian)(jian)(jian)管(guan)力量，構(gou)建(jian)(jian)(jian)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)綜(zong)合執(zhi)法(fa)(fa)(fa)(fa)體(ti)制(zhi)(zhi)(zhi)(zhi)(zhi)，整合組建(jian)(jian)(jian)生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)綜(zong)合執(zhi)法(fa)(fa)(fa)(fa)隊伍，完(wan)善跨區域(yu)(yu)、流域(yu)(yu)、海域(yu)(yu)的環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)管(guan)機(ji)(ji)制(zhi)(zhi)(zhi)(zhi)(zhi)建(jian)(jian)(jian)設(she)，尤(you)其是(shi)強(qiang)化(hua)(hua)區域(yu)(yu)生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)執(zhi)法(fa)(fa)(fa)(fa)協同(tong)(tong)力度(du)(du)。三是(shi)強(qiang)化(hua)(hua)基層生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)執(zhi)法(fa)(fa)(fa)(fa)能力建(jian)(jian)(jian)設(she)。建(jian)(jian)(jian)立(li)健全城市綜(zong)合執(zhi)法(fa)(fa)(fa)(fa)部門與環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)執(zhi)法(fa)(fa)(fa)(fa)部門間信(xin)息共享(xiang)、證據共享(xiang)機(ji)(ji)制(zhi)(zhi)(zhi)(zhi)(zhi)和(he)(he)聯(lian)動機(ji)(ji)制(zhi)(zhi)(zhi)(zhi)(zhi)，形成執(zhi)法(fa)(fa)(fa)(fa)合力。充分運用(yong)科技(ji)手段(duan)，提(ti)高環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)管(guan)執(zhi)法(fa)(fa)(fa)(fa)精準度(du)(du)，推(tui)廣非現場監(jian)(jian)(jian)(jian)(jian)管(guan)執(zhi)法(fa)(fa)(fa)(fa)模式，探索“智慧執(zhi)法(fa)(fa)(fa)(fa)”新(xin)模式。四是(shi)構(gou)建(jian)(jian)(jian)智能生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)(ce)網絡體(ti)系。綜(zong)合應(ying)用(yong)無人(ren)機(ji)(ji)、衛星遙感、航(hang)空(kong)遙感、全球定(ding)位(wei)系統(tong)(tong)(tong)等各種(zhong)監(jian)(jian)(jian)(jian)(jian)測(ce)(ce)手段(duan)，構(gou)建(jian)(jian)(jian)一(yi)(yi)套動態(tai)、立(li)體(ti)、全方位(wei)、多層次、全覆蓋的智能環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)(ce)網絡體(ti)系。創新(xin)“互聯(lian)網+監(jian)(jian)(jian)(jian)(jian)管(guan)”應(ying)用(yong)模式，構(gou)建(jian)(jian)(jian)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)管(guan)大數(shu)據平臺(tai)。健全監(jian)(jian)(jian)(jian)(jian)測(ce)(ce)數(shu)據質量控制(zhi)(zhi)(zhi)(zhi)(zhi)與科學(xue)(xue)統(tong)(tong)(tong)計制(zhi)(zhi)(zhi)(zhi)(zhi)度(du)(du)。建(jian)(jian)(jian)立(li)高效(xiao)科學(xue)(xue)的生(sheng)(sheng)(sheng)態(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)(ce)數(shu)據采集(ji)機(ji)(ji)制(zhi)(zhi)(zhi)(zhi)(zhi)和(he)(he)能力。

4.3強(qiang)化生(sheng)態(tai)環(huan)境政(zheng)策(ce)執行能力

生態(tai)(tai)環(huan)(huan)(huan)境(jing)(jing)政(zheng)(zheng)(zheng)策(ce)執行一直是生態(tai)(tai)決策(ce)政(zheng)(zheng)(zheng)策(ce)鏈(lian)的短板，這(zhe)是“十四五”時(shi)期(qi)生態(tai)(tai)環(huan)(huan)(huan)境(jing)(jing)政(zheng)(zheng)(zheng)策(ce)改革需(xu)要著力(li)突(tu)破的政(zheng)(zheng)(zheng)策(ce)關節。一是建立(li)生態(tai)(tai)環(huan)(huan)(huan)境(jing)(jing)政(zheng)(zheng)(zheng)策(ce)評估機(ji)制。探(tan)索重(zhong)大環(huan)(huan)(huan)境(jing)(jing)政(zheng)(zheng)(zheng)策(ce)第三方機(ji)制，建立(li)政(zheng)(zheng)(zheng)策(ce)評估的專家技(ji)術能力(li)，研究(jiu)生態(tai)(tai)環(huan)(huan)(huan)境(jing)(jing)政(zheng)(zheng)(zheng)策(ce)評估結果反(fan)饋機(ji)制與(yu)重(zhong)大政(zheng)(zheng)(zheng)策(ce)適時(shi)修(xiu)訂機(ji)制，及時(shi)發現問(wen)題并提出改進措施。探(tan)索多(duo)元(yuan)評估主(zhu)體有序(xu)參與(yu)機(ji)制，開(kai)展第三方專業評估，提高生態(tai)(tai)環(huan)(huan)(huan)境(jing)(jing)決策(ce)科學化和(he)民主(zhu)化。二是是建立(li)生態(tai)(tai)環(huan)(huan)(huan)境(jing)(jing)保護重(zhong)大政(zheng)(zheng)(zheng)策(ce)評估技(ji)術體系(xi)。研究(jiu)基(ji)于費用—效益等分析方法的生態(tai)(tai)環(huan)(huan)(huan)境(jing)(jing)政(zheng)(zheng)(zheng)策(ce)評估技(ji)術，建立(li)重(zhong)大政(zheng)(zheng)(zheng)策(ce)制定和(he)實施的費用效益及經濟社會(hui)影響評估技(ji)術指南。

4.4夯(hang)實科技創新支撐與保障

政(zheng)策(ce)(ce)(ce)(ce)(ce)的執行需要(yao)科(ke)技(ji)(ji)保(bao)障(zhang)(zhang)，通(tong)過科(ke)技(ji)(ji)創新提升生(sheng)(sheng)態(tai)環(huan)(huan)境政(zheng)策(ce)(ce)(ce)(ce)(ce)實施(shi)(shi)效(xiao)能(neng)是“十四(si)五(wu)”政(zheng)策(ce)(ce)(ce)(ce)(ce)工作的重點內容。“十四(si)五(wu)”時期，生(sheng)(sheng)態(tai)環(huan)(huan)境政(zheng)策(ce)(ce)(ce)(ce)(ce)制(zhi)(zhi)定(ding)(ding)(ding)和(he)(he)實施(shi)(shi)需要(yao)充分利用(yong)好(hao)科(ke)技(ji)(ji)方(fang)法(fa)和(he)(he)手(shou)段，提升政(zheng)策(ce)(ce)(ce)(ce)(ce)制(zhi)(zhi)定(ding)(ding)(ding)的科(ke)學(xue)水平，政(zheng)策(ce)(ce)(ce)(ce)(ce)執行的成效(xiao)和(he)(he)效(xiao)率。一是加強生(sheng)(sheng)態(tai)環(huan)(huan)境保(bao)護(hu)科(ke)學(xue)決策(ce)(ce)(ce)(ce)(ce)與實施(shi)(shi)能(neng)力。對(dui)生(sheng)(sheng)態(tai)環(huan)(huan)境政(zheng)策(ce)(ce)(ce)(ce)(ce)制(zhi)(zhi)定(ding)(ding)(ding)的關(guan)鍵領(ling)域和(he)(he)技(ji)(ji)術(shu)問題進(jin)行系統研究(jiu)，推進(jin)生(sheng)(sheng)態(tai)環(huan)(huan)境政(zheng)策(ce)(ce)(ce)(ce)(ce)制(zhi)(zhi)定(ding)(ding)(ding)新技(ji)(ji)術(shu)和(he)(he)新方(fang)法(fa)研究(jiu)，構(gou)建科(ke)學(xue)制(zhi)(zhi)定(ding)(ding)(ding)生(sheng)(sheng)態(tai)環(huan)(huan)境政(zheng)策(ce)(ce)(ce)(ce)(ce)的技(ji)(ji)術(shu)體(ti)(ti)系。二是促進(jin)和(he)(he)鼓勵(li)物聯網、大數據、云計算、人工智能(neng)、衛星遙感等(deng)高科(ke)技(ji)(ji)技(ji)(ji)術(shu)手(shou)段在政(zheng)策(ce)(ce)(ce)(ce)(ce)制(zhi)(zhi)定(ding)(ding)(ding)領(ling)域的創新推廣應(ying)用(yong)。三(san)是強化科(ke)技(ji)(ji)創新的資金保(bao)障(zhang)(zhang)。按照事權與支出責任相(xiang)適應(ying)的原則，各級財政(zheng)對(dui)生(sheng)(sheng)態(tai)環(huan)(huan)境政(zheng)策(ce)(ce)(ce)(ce)(ce)制(zhi)(zhi)定(ding)(ding)(ding)實施(shi)(shi)予(yu)以合(he)理(li)保(bao)障(zhang)(zhang)。深化科(ke)技(ji)(ji)計劃管理(li)改革，整合(he)優化資源，支持政(zheng)策(ce)(ce)(ce)(ce)(ce)制(zhi)(zhi)定(ding)(ding)(ding)重點領(ling)域科(ke)技(ji)(ji)研發和(he)(he)示范(fan)應(ying)用(yong)，促進(jin)生(sheng)(sheng)態(tai)環(huan)(huan)境政(zheng)策(ce)(ce)(ce)(ce)(ce)制(zhi)(zhi)定(ding)(ding)(ding)技(ji)(ji)術(shu)創新。

5 “十(shi)四五”生態(tai)環境政策改革(ge)創新路徑

本研(yan)究系統(tong)分析了(le)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)政(zheng)(zheng)(zheng)策實施現狀、改革(ge)基礎與(yu)“十(shi)四(si)(si)(si)五(wu)(wu)”時期(qi)改革(ge)需(xu)(xu)求，提(ti)出了(le)“十(shi)四(si)(si)(si)五(wu)(wu)”生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)政(zheng)(zheng)(zheng)策改革(ge)創新(xin)路徑（見表1）。“十(shi)四(si)(si)(si)五(wu)(wu)”時期(qi)主要針對綠(lv)色(se)(se)發展四(si)(si)(si)大結構調(diao)(diao)整(zheng)、生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)空(kong)間管控、生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)質量目(mu)標管理、生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)市場經(jing)濟政(zheng)(zheng)(zheng)策、生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)治理體系、全球環(huan)境(jing)治理六(liu)大環(huan)境(jing)政(zheng)(zheng)(zheng)策領域(yu)進(jin)行改革(ge)路徑創新(xin)，建立三檔次、四(si)(si)(si)類(lei)別(bie)、兩階段政(zheng)(zheng)(zheng)策改革(ge)邏輯框架。其中，政(zheng)(zheng)(zheng)策執(zhi)行水平(ping)分為(wei)(wei)良好、一般與(yu)較差三個檔次，政(zheng)(zheng)(zheng)策調(diao)(diao)整(zheng)類(lei)型(xing)分為(wei)(wei)新(xin)立、修(xiu)改、保持、廢除(chu)四(si)(si)(si)個類(lei)別(bie)，政(zheng)(zheng)(zheng)策路徑分為(wei)(wei)2021—2023年、2024—2025年兩個階段。總(zong)體上(shang)，“十(shi)三五(wu)(wu)”時期(qi)工業行業超低排(pai)放補貼(tie)(tie)、清潔取暖補貼(tie)(tie)、綠(lv)色(se)(se)稅費價格、生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)治理、環(huan)境(jing)全球治理等(deng)多數政(zheng)(zheng)(zheng)策執(zhi)行水平(ping)良好，“十(shi)四(si)(si)(si)五(wu)(wu)”時期(qi)加強政(zheng)(zheng)(zheng)策的(de)穩定性和(he)連(lian)續性，完(wan)善并有序推進(jin)政(zheng)(zheng)(zheng)策實施。差別(bie)電價水價雙調(diao)(diao)控、輕型(xing)車超低排(pai)放、岸電使用補貼(tie)(tie)等(deng)政(zheng)(zheng)(zheng)策執(zhi)行水平(ping)一般，需(xu)(xu)要進(jin)一步(bu)完(wan)善與(yu)重(zhong)點提(ti)升(sheng)。

（來源：生態環(huan)境(jing)部環(huan)境(jing)規劃院(yuan)）