大氣污染防治行動(dòng)計(jì)劃績效評(píng)估與區(qū)域協(xié)調(diào)機(jī)制研究

大氣污染防治行動(dòng)計(jì)劃績效評(píng)估與區(qū)域協(xié)調(diào)機(jī)制研究PerformanceEvaluationontheActionPlanofAirPollutionPreventionandControlandRegionalCoordinationMechanism郝吉明JimingHao1),麥克·沃爾什MichaelP.Walsh2)

1)清華大學(xué)TsinghuaUniversity2)國際清潔交通委員會(huì)InternationalCouncilonCleanTransportation2014年12月1-3日,北京Dec1-3,2014,Beijing匯報(bào)內(nèi)容Outline項(xiàng)目背景和主要實(shí)施過程ProjectBackgroundandImplementationProcess《行動(dòng)計(jì)劃》績效評(píng)估指標(biāo)與方法體系研究StudyonPerformanceEvaluationIndicatorsandMethodologySystemfortheActionPlan“十三五”與2030年大氣污染防治目標(biāo)與路線圖AirPollutionPreventionandControlTargetsandRoadmapforthe13thFYPand2030Long-termPlan區(qū)域大氣污染防治協(xié)調(diào)機(jī)制國際經(jīng)驗(yàn)StudyonInternationalExperiencesofCoordinationMechanismforRegionalAirPollutionPreventionandControl區(qū)域大氣污染防治協(xié)調(diào)機(jī)制與政策研究CoordinationMechanismandPolicyStudyforRegionalAirPollutionPreventionandControl主要研究結(jié)論與政策建議MajorResearchConclusionsandPolicyRecommendations研究背景BackgroundSO2NOxVOCCOPM2.5NH3主要大氣污染物排放量巨大

Hugeemissionsofmajorairpollutants我國主要大氣污染物排放量迅速增長，都已升居世界第一

Chinabecomesthe

world’slargestemitterofmajorpollutants.2012年,我國SO2、NOX等排放量與美國1990年排放水平相當(dāng)，若削減至美國2009年排放水平，則分別削減60%、45%TheSO2andNOXemissionsofChinain2012arecomparabletotheleveloftheU.Sin1990,a

reductionby60%and45%

respectivelyisneededtoreachtheU.S.levelin2009.研究背景Background全國大氣污染形勢(shì)極為嚴(yán)峻:PM2.5濃度距達(dá)標(biāo)差距較大AwidegapbetweenPM2.5concentrationandthestandard首批開展PM2.5監(jiān)測的74個(gè)城市中，有71個(gè)不達(dá)標(biāo)71citiesoutof74(startedPM2.5monitoringsince2013)failtocomplywiththePM2.5standard.京津冀區(qū)域PM2.5平均濃度為二級(jí)標(biāo)準(zhǔn)的3.0倍

Beijing-Tianjin-Hebeiregion(JJJ):3timesthelevelofGrade-IIstandard長三角區(qū)域PM2.5平均濃度為二級(jí)標(biāo)準(zhǔn)的1.9倍

YangtzeRiverDeltaregion(YRD):1.9timesthelevelofGrade-IIstandard珠三角區(qū)域PM2.5平均濃度為二級(jí)標(biāo)準(zhǔn)的1.3倍PearlRiverDeltaregion(PRD):1.3timesthelevelofGrade-IIstandard74個(gè)城市PM2.5平均濃度為二級(jí)標(biāo)準(zhǔn)的2.1倍

74cities:2.1timesthelevelofGrade-IIstandard2013年P(guān)M2.5濃度超標(biāo)情況PM2.5concentrationin2013數(shù)據(jù)來源于中國環(huán)境監(jiān)測總站Source:ChinaNationalEnvironmentalMonitoringCenter黨中央和新一屆政府高度重視大氣污染防治工作HighattentionpaidbythePartyandthegovernmenttoAPcontrol

黨的“十八大”提出建設(shè)生態(tài)文明和美麗中國的目標(biāo)Promoteecologicalprogressandbuildabeautifulcountry,fromReporttothe18thNationalCongressoftheCommunistPartyofChina

在第七次全國環(huán)保大會(huì)上對(duì)大氣污染防治工作等提出明確要求Requirementsonairpollutioncontrolatthe7thNationalConferenceonEnvironmentalProtection進(jìn)一步加強(qiáng)空氣污染防治，修訂并發(fā)布空氣質(zhì)量標(biāo)準(zhǔn)，抓緊做好增加PM2.5監(jiān)測指標(biāo)的準(zhǔn)備，鼓勵(lì)各地根據(jù)污染特征、經(jīng)濟(jì)發(fā)展水平等分期實(shí)施，逐步與國際標(biāo)準(zhǔn)接軌。Strengthenairpollutioncontrol.Amendthenewambientairqualitystandard.StarttopreparePM2.5monitoring.Integratewithinternationalstandardstepbystepbasedonlocalpollutioncharacteristicsandthelevelofeconomicdevelopment.新一屆政府制定行動(dòng)計(jì)劃，制定了嚴(yán)格的措施ActionPlanandstringentmeasuresdevelopedbythe

government人民關(guān)注Publicconcern專家建議Recommendations項(xiàng)目主要實(shí)施進(jìn)程ProgressoftheProject2月項(xiàng)目啟動(dòng)會(huì)暨第一次工作會(huì)議Feb,thekick-off/firstworkingmeetinginBeijing5月項(xiàng)目第二次工作會(huì)議May,thesecondworkingmeetinginBeijing7月項(xiàng)目第三次工作會(huì)議Jul,thethirdworkingmeetinginWashingtonDC8月項(xiàng)目第四次工作會(huì)議Aug,thefourthworkingmeetinginBeijing期間多次內(nèi)部技術(shù)專家討論會(huì)SeveralinternalprojectmeetingsinBeijing以簽訂目標(biāo)責(zé)任書的形式確定了2017年31個(gè)省空氣質(zhì)量改善目標(biāo)

LetteroftargetsignedonAPtargetsfor31provinces目標(biāo)分檔原則Principlesforclassification各地社會(huì)經(jīng)濟(jì)發(fā)展現(xiàn)狀Currentsocialandeconomicdevelopment結(jié)合當(dāng)?shù)乜諝赓|(zhì)量現(xiàn)狀Currentairquality目標(biāo)分檔類型Typesforclassification重點(diǎn)與非重點(diǎn)地區(qū)Keyareasandnon-keyareasPM2.5四檔；PM10五檔4levelsforPM2.5and5levelsforPM10為了推動(dòng)責(zé)任落實(shí)，需要建立有效的《行動(dòng)計(jì)劃》實(shí)施績效評(píng)估指標(biāo)與方法體系，以評(píng)估和幫助指導(dǎo)各地《行動(dòng)計(jì)劃》的實(shí)施。

PerformanceevaluationindicatorsandmethodologysystemisrequiredfortheimplementationoftheActionPlan.研究內(nèi)容1）《行動(dòng)計(jì)劃》績效評(píng)估指標(biāo)與方法體系研究1)

Task1:StudyonPerformanceEvaluationIndicatorsandMethodologySystemfortheActionPlan《行動(dòng)計(jì)劃》的預(yù)評(píng)估Pre-evaluation《行動(dòng)計(jì)劃》實(shí)施進(jìn)展的追蹤評(píng)估Dynamic/Trackevaluation/PostevaluationEmissionreductionevaluation《行動(dòng)計(jì)劃》措施MeasuresStrengthenorimprovementrecommendationAQimprovementevaluationProgressofairpollutioncontrolIfnotmeetingthegoal,why?AQreachestarget?Implementtheairpollutioncontroltask?StrengthencontrolmeasuresRecommendationsonmeasurestoimplementAQimprovementeffectevaluationbymodel研究內(nèi)容1）《行動(dòng)計(jì)劃》績效評(píng)估指標(biāo)與方法體系研究1)

Task1:StudyonPerformanceEvaluationIndicatorsandMethodologySystemfortheActionPlanAirpollutioncontroltaskindicators

2017

2012-2017

(2017-2012)/2012

京津冀預(yù)評(píng)估案例分析Apre-evaluationof2013-2017ActionPlanforJing-Jin-Ji

模擬結(jié)果顯示，現(xiàn)有能定量減排的政策措施落實(shí)后，北京PM2.5濃度降幅明顯，但天津市和河北省仍存在達(dá)不到2017年濃度降低25%的風(fēng)險(xiǎn)。PreliminarysimulationresultsbasedonexistingpoliciesandmeasureswhichcouldbequantitativelyanalyzedshowthattheBeijingPM2.5concentrationsreducesignificantly,butTianjinandHebeiareatriskoffailingtoreachthetarget.現(xiàn)在的資源、能力建設(shè)等基礎(chǔ)尚不能支持政策措施全面落實(shí)到位，后續(xù)需進(jìn)一步強(qiáng)化多源多污染物的協(xié)同控制力度。Theresources,capacitybuildingandotherinfrastructurearenotyetavailabletofullysupporttheimplementationofallmeasures,morestringentcontrolsarenecessary.研究內(nèi)容1）《行動(dòng)計(jì)劃》績效評(píng)估指標(biāo)與方法體系研究1)

Task1:StudyonPerformanceEvaluationIndicatorsandMethodologySystemfortheActionPlan基于2030年空氣質(zhì)量達(dá)標(biāo)的全國污染物排放量控制目標(biāo)：以2012年為基準(zhǔn)，2030年全國SO2、NOX、一次PM2.5和VOCs排放量應(yīng)分別削減52%、65%、57%和39%，NH3排放量有所下降。EmissionreductiontargetinChina:by2030,theemissionsofSO2,NOX,PM2.5andVOCsinChinashouldbereducedby52%,65%,57%,and39%comparedwiththoseof2012.TheemissionsofNH3shoulddecreaseslightly.研究內(nèi)容2）“十三五”與2030年大氣污染防治目標(biāo)與路線圖2)Task2:AirPollutionPreventionandControlRoadmapforthe13thFYPand2030Long-termPlan對(duì)于污染嚴(yán)重的重點(diǎn)區(qū)域，應(yīng)采取更嚴(yán)格的控制力度：例如京津冀地區(qū)2030年SO2、NOX、PM2.5、VOC和NH3的排放量至少應(yīng)分別削減59%、72%、70%、44%和21%，且周邊山東等省需同步嚴(yán)格控制。Weshouldintensifyemissioncontrolinheavilypollutedareas.Forexample,SO2,NOX,PM2.5,VOCandNH3emissionsintheBeijing-Tianjin-HebeiRegionin2030shouldbereducedbyatleast59%,72%,70%,44%,and21%respectively.研究內(nèi)容2）“十三五”與2030年大氣污染防治目標(biāo)與路線圖2)Task2:AirPollutionPreventionandControlRoadmapforthe13thFYPand2030Long-termPlan研究內(nèi)容2）“十三五”與2030年大氣污染防治目標(biāo)與路線圖2)Task2:AirPollutionPreventionandControlRoadmapforthe13thFYPand2030Long-termPlanEmissionControlPathways要實(shí)現(xiàn)2030年空氣質(zhì)量達(dá)標(biāo)需采取非常嚴(yán)格的控制情景EitherENE+EOPorMFRscenarioneedtobeadoptedtoachievetheairqualitytargetby2030inChina.1)Businessasusual,趨勢(shì)照常情景(BAU);2)End-of-pipecontrol,末端治理情景(EOP)3)Alternativeenergypolicy+Endofpipecontrol,可持續(xù)能源+末端治理情景(ENE+EOP)4)MaximumFeasibleReduction,最大減排潛力情景

(MFR)煤炭清潔高效可持續(xù)利用

Clean,efficientandsustainableuseofcoal煤炭優(yōu)先用于電廠等大型燃燒設(shè)備，推進(jìn)小型燃煤鍋爐和爐灶的淘汰，推廣集中供熱著力提高煤炭利用效率：燃煤電廠的平均熱效率由2010年的36%提高到2030年的42%；工業(yè)鍋爐、煉鐵高爐、水泥生產(chǎn)、煉焦?fàn)t和磚瓦窯單位產(chǎn)品的能耗從2010年到2030年分別降低24%、13%、16%、44%和27%加速能源結(jié)構(gòu)調(diào)整，提升清潔能源比例

Speeduptheadjustmentofenergystructure;increasetheuseofcleanenergy到2030年，全國煤炭占能源消費(fèi)比例不超過50%2030年天然氣、核能、可再生能源（不包括生物質(zhì)）占比應(yīng)達(dá)到25%強(qiáng)化多源、多污染物的協(xié)同控制

Strengthenthecoordinatedcontrolonmulti-sourcesandmulti-pollutants研究內(nèi)容2）“十三五”與2030年大氣污染防治目標(biāo)與路線圖2)Task2:AirPollutionPreventionandControlRoadmapforthe13thFYPand2030Long-termPlan區(qū)域空氣質(zhì)量管理的國際經(jīng)驗(yàn)Regionalairqualitymanagement研究內(nèi)容3）區(qū)域大氣污染防治協(xié)調(diào)機(jī)制國際經(jīng)驗(yàn)3)Task3:InternationalExperiencesofCoordinationMechanismforRegionalAirPollutionPreventionandControlSource:USEPA美國建立區(qū)域性的規(guī)劃機(jī)構(gòu)（RPO）協(xié)調(diào)區(qū)域大氣污染防控EPAandstatesandotherstakeholderscreatedregionalplanningorganizationstofosterregionalcoordinationandcooperation.Source:EMEP,2013歐洲1979年簽署“長距離越境空氣污染公約”，減排政策的制定建立在定量化跨界輸送分析基礎(chǔ)之上。CLRTAP,emissionreductionpolicybuiltonthebasisofquantitativeanalysisofcross-bordertransport.EstablishemissiontrackingsystemsImproveregionalmodellingcapabilitiesBuildcapacityforairqualitymanagement中國應(yīng)實(shí)施強(qiáng)有力的區(qū)域協(xié)調(diào)計(jì)劃，確?？諝馕廴镜貐^(qū)內(nèi)所有相關(guān)方進(jìn)行密切協(xié)調(diào)

ChinashouldadoptastrongregionalprogramtoassureclosecoordinationbyallpartieswhoseemissionscontributetotheairqualityinagivenairshedFacilitatecoordinationandcooperationamongprovincialandmunicipalairandenergyofficials.Buildcapacitythroughtraining,andsharingexperiencesandlessons.Bringconsistencytoemissiondata,monitoringnetworksandmethods,andmodelinganalysis.Leverageresources.為實(shí)現(xiàn)最佳的減排成本效益，歐美采用了多部門協(xié)同控制方法，中國也應(yīng)該采用這種方法Integratedmulti-sectorialpolicyapproacheshavebeenusedtocost-effectivelyreduceemissionsinEuropeandtheUSandshouldbeusedinChina-SO2,NOX,PMandVOCsemissionsshouldbereducedthrough:(i)energyefficiencyimprovements(decouplingbetweenGDPandenergyconsumption),(ii)changesinfuelinput,i.e.,substitutionofcoalbycleanerfuels,and(iii)dedicatedend-of-pipeemissioncontrolmeasures,withstrictenforcementmechanisms.Stationarysources:Minimumperformancestandardsbasedonthebestavailableemissioncontroltechnologieswhicharenotexcessivelycostly,shouldberequiredforallnewmajorsourcesandanymajorsourcesundergoingsignificantmodificationorrelocation.Inpollutedareas,localauthoritiesshouldbeauthorizedtoimposeevenstricterstandards.研究內(nèi)容3）區(qū)域大氣污染防治協(xié)調(diào)機(jī)制國際經(jīng)驗(yàn)3)Task3:InternationalExperiencesofCoordinationMechanismforRegionalAirPollutionPreventionandControlMobilesources:Whilelocalvehicleemissionstandardscanaccelerateearlyprogress,motorvehiclesespeciallycommercialvehiclestravelacrosspoliticalboundaries;therefore,nationalvehicleemissionrequirementsshouldbesufficientlystringenttoaddressthemostseriousairpollutionproblems.Mobilesources:Oncefuelofsufficientqualityisavailable,themoststringentfeasiblevehiclestandardshavebeenfoundtobeverycosteffectiveinEuropeandtheUSandshouldbeadoptedinChina.Economicincentives,suchasemission-dependentvehicletaxesandmotorwaychargingschemes,shouldbeusedtopromotefastermodernizationofthevehiclefleetorretrofitwithexhaustgastreatmentsystems,likedieselparticulatefilters.中國應(yīng)花大力氣建立強(qiáng)有力的措施實(shí)施保障計(jì)劃

ChinashouldfocusonbuildingastrongandeffectivecomplianceprogramTheeffectivenessofthepoliciesandcontrolmeasuresadoptedbyChinaisultimatelydependentonawell-fundedandstaffedcomplianceprogram.研究內(nèi)容3）區(qū)域大氣污染防治協(xié)調(diào)機(jī)制國際經(jīng)驗(yàn)3)Task3:InternationalExperiencesofCoordinationMechanismforRegionalAirPollutionPreventionandControl中國清潔空氣計(jì)劃的關(guān)鍵：制定能夠充分保障公眾健康的合理空氣質(zhì)量標(biāo)準(zhǔn)，建立能夠準(zhǔn)確評(píng)估措施實(shí)施的監(jiān)測網(wǎng)絡(luò)

SettingappropriateairqualitystandardsthatwilladequatelyprotectpublichealthandimplementingamonitoringnetworkthataccuratelyassessescompliancewiththosestandardsshouldbethebackboneofChina’sCleanAirProgramAmbientairpollutiondataqualityshouldbeensuredthroughcarefullydesignedandoperateddataqualityassuranceandqualitycontrol(QA/QC)procedures.Ambientmonitoringnetworksshouldbedesignedtoenabletheapportioningofthecontributionsfromlocalsources,urbanconurbations,andregionalpollutionsources.中國的當(dāng)務(wù)之急：制定污染控制有效性評(píng)估方案，量化空氣質(zhì)量改善進(jìn)展

AprocessformeasuringtheeffectivenessofcontrolmeasuresanddeterminingprogressinimprovingairqualityshouldbeapriorityforChinaTheevaluationofannualairqualitychangesshouldbeadjustedforinter-annualdifferencesinmeteorologicalandotherconditions.Measuringannualimprovementinairqualityisstronglylinkedwithquality/accuracyofthemonitoreddata,andtheneededcapacityforQA/QCprocedures.中國應(yīng)強(qiáng)調(diào)大氣污染物減排對(duì)改善氣候變化的協(xié)同效益

Chinashouldhighlighttheclimatechangeco-benefitsoftheairpollutioncontroleffortChina’sairpollutioncontroleffortwillreducecoalconsumption,increasetheuseofrenewablefuels,improvevehicleefficiency,etc.;eachoftheseairpollutioncontrolstepswillreduceCO2emissionsasaco-benefit.Extremelyimportanttohighlighttheclimatebenefitsofthecleanairstrategyandthewin-winnatureoftheeffort研究內(nèi)容3）區(qū)域大氣污染防治協(xié)調(diào)機(jī)制國際經(jīng)驗(yàn)3)Task3:InternationalExperiencesofCoordinationMechanismforRegionalAirPollutionPreventionandControl研究內(nèi)容4）區(qū)域大氣污染防治協(xié)調(diào)機(jī)制與政策研究4)Task4:CoordinationMechanismandPolicyStudyforRegionalAirPollutionPreventionandControl傳統(tǒng)分區(qū)未考慮污染傳輸規(guī)律，缺乏對(duì)污染特征的系統(tǒng)分析，因此不夠全面。1)ConventionalairpollutioncontrolandmanagementinChinalacksconsiderationofairpollutiontransportandasystematicanalysisofairpollution.2)Inthefuture,regionsshouldbescientificallygroupedbasedonquantitativeresearchbasedonsatellites,ambientmonitorsandairqualitymodelstoenhanceairqualitymanagement.傳統(tǒng)分區(qū)：行政、經(jīng)濟(jì)、人口、污染物排放Traditionalmanagementzone:Territorial,Economic,Population,Emission基于衛(wèi)星遙感的分區(qū)：大氣污染特征相似性Satellitemanagementzone:Similarityofairpollution基于地面監(jiān)測的分區(qū)：大氣污染累積過程的同步性Monitoringdatemanagementzone:synchronizationofcumulativeprocessofurbanairpollution基于模型模擬的分區(qū)：地區(qū)間大氣污染傳輸規(guī)律

Modelingmanagementzone:regionalairpollutiontransfermenchanism對(duì)全國、京津冀及周邊地區(qū)、長三角區(qū)域大氣污染防治協(xié)調(diào)機(jī)制進(jìn)行了系統(tǒng)評(píng)估Assessthecoordinationmechanisminnational,andJing-Jin-Ji/YangtzeRiverDeltaregions.研究內(nèi)容4）區(qū)域大氣污染防治協(xié)調(diào)機(jī)制與政策研究4)Task4:CoordinationMechanismandPolicyStudyforRegionalAirPollutionPreventionandControlThe2thcoordinatedmeetinginJJJandsurroundingareaThe1st

coordinatedmeetinginYRDregion研究內(nèi)容4）區(qū)域大氣污染防治協(xié)調(diào)機(jī)制與政策研究4)Task4:CoordinationMechanismandPolicyStudyforRegionalAirPollutionPreventionandControlNationalAirQualityForecastingandWarningSystem

現(xiàn)有區(qū)域協(xié)作偏重于重污染天氣的預(yù)警與應(yīng)急聯(lián)動(dòng)，而在規(guī)劃、控制目標(biāo)和要求、常態(tài)化監(jiān)督管理和聯(lián)合執(zhí)法機(jī)制的統(tǒng)一建設(shè)方面相對(duì)缺乏，環(huán)境信息共享覆蓋面和深度遠(yuǎn)不能滿足區(qū)域大氣污染防治的要求。1)Theregionalcoordinationmechanismislimited,focusedprimarilyonheavypollutionweatheralertsandjointemergencyresponses.2)Theregionslackunifiedplans,objectives,controlrequirements,supervisionandadministration.Astoenvironmentalinformationsharing,significantprogressisneededtomeettherequirementsforregionalairpollutionpreventionandcontrol.主要研究結(jié)論MajorResearchConclusions

(1)1)以細(xì)顆粒物（PM2.5）為主要特征污染物的區(qū)域性大氣環(huán)境問題日益突出。Regionalatmosphericproblems,includingPM2.5,whichisbecomingincreasinglyprominent.2)在《大氣污染防治行動(dòng)計(jì)劃》指導(dǎo)下，亟需建立完善的控制績效評(píng)估體系來科學(xué)評(píng)估各項(xiàng)措施實(shí)施帶來的環(huán)境、社會(huì)和經(jīng)濟(jì)效益。Itisimperativetoalsoestablishathoroughperformanceappraisalsystemforscientificevaluationoftheenvironmental,socialandeconomicbenefitsgeneratedbythepollutionpreventionandcontrolmeasures.3)實(shí)施“大氣十條”后京津冀地區(qū)PM2.5濃度降幅顯著，但天津市和河北省仍存在達(dá)不到2017年濃度降低25%的風(fēng)險(xiǎn)，后續(xù)需進(jìn)一步強(qiáng)化多源多污染物的協(xié)同控制力度。Accordingtothepre-implementationanalysisoftheBeijing-Tianjin-HebeiRegionactionplan,PM2.5concentrationsareexpectedtodropsignificantly.However,TianjinandHebeimaynotreachthe25%PM2.5concentrationreductiontargetbytheyear2017.Resourcesandcapacityforcomprehensiveimplementationofthepolicymeasuresmustbeenhanced.一、全國大氣污染形勢(shì)嚴(yán)峻，亟需建立完善的控制績效評(píng)估體系A(chǔ)ThoroughAppraisalSystemisNeededforAirPollutionPlans主要研究結(jié)論MajorResearchConclusions(2)1)以實(shí)現(xiàn)2030年重點(diǎn)城市空氣質(zhì)量達(dá)標(biāo)為目標(biāo)的減排壓力巨大：以2012年為基準(zhǔn)，2030年全國SO2、NOX、PM2.5和VOC排放量應(yīng)分別至少削減52%、65%、57%和39%，NH3排放量略有下降。對(duì)于污染嚴(yán)重的重點(diǎn)區(qū)域，還應(yīng)采取更嚴(yán)格的控制力度。AirqualityinkeycitiesshouldachievetheambientairqualitystandardforPM2.5

by2030.Onthebasisof2012emissions,SO2,NOX,PM2.5andVOCemissionsnationwideshouldbereducedbyatleast52%,65%,57%,and39%,respectively,by2030,andNH3shoulddecreaseslightly.Weshouldintensifyemissioncontrolinheavilypollutedareas.2)亟需開展多污染物、多污染源和多區(qū)域的協(xié)同控制，采用調(diào)整能源結(jié)構(gòu)、提高能源效率、加強(qiáng)末端治理等全過程的控制措施。Chinashouldcarryoutcoordinatedcontroleffortsformultiplepollutantsandemissionsourcesindifferentregions,adoptingcontrolmeasuresthatcancomplementtheprocessofadjustingtheenergystructure,improvingenergyefficiencyandenhancingend-of-pipepollutioncontrol,etc.China’sAirPollutionProblemWillRequireYearstoSolve！二、未來中國實(shí)現(xiàn)空氣質(zhì)量達(dá)標(biāo)的多污染物協(xié)同減排壓力巨大ChinaFacesGreatChallengestoReduceEmissionsandMeettheAirQualityStandard主要研究結(jié)論MajorResearchConclusions(3)1)歐洲和美國要求地方和州/國家有關(guān)當(dāng)局在規(guī)定的時(shí)間框架內(nèi)達(dá)到環(huán)境空氣質(zhì)量標(biāo)準(zhǔn)，并提供減少排放和降低污染的綜合策略，同時(shí)建立綜合和信息公開的空氣質(zhì)量監(jiān)測網(wǎng)。EuropeandtheUSdemandthattherelevantlocalandstate/nationalauthoritiesachieveairqualitystandardswithinspecifiedtimeframes.TheEuropeanAirQualityPlansandtheAmericanStateImplementationPlansoutlinecomprehensivestrategiesforemissionreductionsandairqualityimprovements.Comprehensiveairqualitymonitoringnetworksareusedtoevaluateprogresstowardmeetingambientairqualitystandards,andensuretransparencyofrelevantenvironmentmonitoringinformation.2)為協(xié)調(diào)區(qū)域大氣污染防治，歐洲和美國均建立了完善的區(qū)域空氣質(zhì)量管理機(jī)制。BothEuropeandtheUShaveestablishedintegratedmanagementmechanismsforregionalairqualitytocoordinateregionalairpollutionpreventionacrossstates/nations(e.g.,CLRTAP,RPO).三、國際經(jīng)驗(yàn)可為我國區(qū)域大氣污染防治協(xié)調(diào)機(jī)制提供重要的參考InternationalExperienceisanImportantReferenceforRegionalAirPollutionControlandCoordination

主要研究結(jié)論MajorResearchConclusions(4)1)傳統(tǒng)的大氣污染控制管理分區(qū)對(duì)大氣污染傳輸規(guī)律考慮不夠，缺乏對(duì)大氣污染特征的系統(tǒng)分析。Conventionalairpollutioncontrolandmanagementlacksconsiderationofairpollutiontransportandasystematicanalysisofairpollution.2)以主要污染物總量減排為主的考核方式導(dǎo)致地方政府在一定程度上忽視了轄區(qū)空氣質(zhì)量改善，區(qū)域和城市缺乏統(tǒng)一的空氣質(zhì)量目標(biāo)。BecausetheperformanceappraisalfocusesontotalemissioncontrolofSO2andNOX,localgovernmentshave,tosomeextent,notfocusedonairqualityimprovements.Alackofunifiedairqualityobjectivesandlackofcoordinationamongcitiesandprovinceshavehinderedregionalairqualityimprovements.3)現(xiàn)有區(qū)域協(xié)調(diào)機(jī)制較為松散，區(qū)域協(xié)作多停留在重污染天氣的預(yù)警與應(yīng)急聯(lián)動(dòng)Theregionalcoordinationmechanismislimited,focusedprimarilyonheavypollutionweatheralertsandjointemergencyresponses.Theregionslackunifiedplans,objectives,controlrequirements,supervisionandadministration,aswellasenvironmentalinformationsharing.四、中國區(qū)域協(xié)調(diào)機(jī)制較為松散，統(tǒng)一的規(guī)劃、目標(biāo)和管理較缺乏ChinaLacksStrongRegionalCoordinationInstitutionsandUnifiedPlans,ObjectivesandManagement主要政策建議MajorPolicyRecommendations(1)

提高空氣質(zhì)量達(dá)標(biāo)的法律地位：應(yīng)在《大氣污染防治法》中明確規(guī)定實(shí)施以空氣質(zhì)量達(dá)標(biāo)為核心的大氣環(huán)境保護(hù)目標(biāo)責(zé)任制和考核評(píng)價(jià)制度。ImprovetheLegalStatusofStandardAirQuality:TheAtmosphericPollutionPreventionLawshouldexplicitlystatethatprovincialandlocalgovernmentsmustimplementandenforceatmosphericprotectionprogramsbasedonairqualityobjectives.2)在以質(zhì)量改善為核心的環(huán)境管理模式下，大氣環(huán)境管理應(yīng)打破行政邊界的限制，進(jìn)行科學(xué)大氣環(huán)境管理分區(qū)：將我國東部污染較重且傳輸活躍的省份統(tǒng)一納入一個(gè)分區(qū)。Theatmosphericmanagementregionsshouldnotbebasedpurelyonpoliticalboundaries,butshouldbebasedonscientificassessmentsthatconsiderspatialandtemporaldistributionofemissions,meteorology,terrainandpollutiontransport.Theeasternprovinceswithheavyairpollutionshouldbegroupedintooneregion.一、建立基于質(zhì)量改善的大氣污染控制管理模式BuildinganAir-Quality-OrientedAirPollutionManagementSystem主要政策建議MajorPolicyRecommendations(2)1)針對(duì)污染嚴(yán)重的大氣環(huán)境管理分區(qū)，如我國從京津冀到長江中下游的東部區(qū)域，從國家層面以區(qū)域空氣質(zhì)量整體達(dá)標(biāo)為目標(biāo)，制定東部區(qū)域空氣質(zhì)量達(dá)標(biāo)規(guī)劃，推進(jìn)區(qū)域大氣污染協(xié)同控制。Basedonthetargetofregionalairqualitycomplianceinkeyregions,suchaseasternprovinces,thescheduleforachievingairqualitystandardsindifferentcitiesshouldbeconsideredatthenationallevel,aimingtoimproveairqualitywhileprovidingareasonableandfeasiblepathway.Policiesshouldpromotecoordinatedcontrolofregionalairpollution,rigorouslycontrolthetotalemissionamountandreducepollutiontransport.2)建立明確、統(tǒng)一、完整的區(qū)域大氣污染防治管理機(jī)制。Establishaclear-cut,unifiedandintegratedregionalairpollutioncontrolandmanagementmechanism.3)整合國家科技力量建立區(qū)域決策支持和規(guī)劃機(jī)構(gòu)。Establishregionaldecisionsupportandplanningagencytoprovidenationalandlocalscientificandtechno