作者：林震(zhen)（北(bei)京林業大學生態文明智(zhi)庫中心(xin)主任(ren)、加強教授，分區北(bei)京市習近平新時(shi)代中國特色社會主義思(si)想(xiang)研(yan)究(jiu)(jiu)中心(xin)特約研(yan)究(jiu)(jiu)員）

　　日前，管控中辦、提升國辦印發《關于加強生態環境分區管控的生態意見》（以下簡稱《意見》），明確提出到2025年，環境化水生態(tai)環境分(fen)區管(guan)控(kong)(kong)制(zhi)(zhi)度基本(ben)建立，治理全域覆(fu)蓋(gai)、現代(dai)精準科學的加強生態(tai)環境分(fen)區管(guan)控(kong)(kong)體系初(chu)步形(xing)成。到2035年，分(fen)區體系健全、管(guan)控(kong)(kong)機(ji)制(zhi)(zhi)順暢、提(ti)升運行高效(xiao)的生態(tai)生態(tai)環境分(fen)區管(guan)控(kong)(kong)制(zhi)(zhi)度全面建立，為生態(tai)環境根本(ben)好(hao)轉、環境化(hua)水(shui)美麗(li)中(zhong)國(guo)目標基本(ben)實現提(ti)供(gong)有(you)力支(zhi)撐。治理

　　生態環境分區管控以保障生態功能和改善環境質量為目標，實施(shi)分(fen)(fen)(fen)(fen)(fen)區域差(cha)異化(hua)(hua)(hua)精(jing)準管控(kong)(kong)。實施(shi)生(sheng)態(tai)(tai)(tai)(tai)(tai)環境(jing)分(fen)(fen)(fen)(fen)(fen)區管控(kong)(kong)是以習近平同志為(wei)核心的(de)(de)黨中(zhong)央(yang)(yang)作(zuo)出的(de)(de)重(zhong)要(yao)決策部(bu)署。2023年11月，習近平總書記在(zai)主持(chi)中(zhong)央(yang)(yang)全面(mian)(mian)深化(hua)(hua)(hua)改革委(wei)員會第三次會議時強調，“生(sheng)態(tai)(tai)(tai)(tai)(tai)環境(jing)分(fen)(fen)(fen)(fen)(fen)區管控(kong)(kong)在(zai)生(sheng)態(tai)(tai)(tai)(tai)(tai)環境(jing)源頭預防體(ti)系(xi)中(zhong)具有基礎性作(zuo)用，要(yao)加強頂層設計、完善(shan)制度(du)體(ti)系(xi)，以保障(zhang)生(sheng)態(tai)(tai)(tai)(tai)(tai)功能(neng)和(he)改善(shan)環境(jing)質量為(wei)目標，推(tui)動實現(xian)生(sheng)態(tai)(tai)(tai)(tai)(tai)環境(jing)分(fen)(fen)(fen)(fen)(fen)區域差(cha)異化(hua)(hua)(hua)精(jing)準管控(kong)(kong)”。實施(shi)生(sheng)態(tai)(tai)(tai)(tai)(tai)環境(jing)分(fen)(fen)(fen)(fen)(fen)區管控(kong)(kong)是全面(mian)(mian)推(tui)進美麗中(zhong)國(guo)建設的(de)(de)重(zhong)要(yao)制度(du)創新，生(sheng)態(tai)(tai)(tai)(tai)(tai)文明制度(du)體(ti)系(xi)和(he)美麗中(zhong)國(guo)空間(jian)治理體(ti)系(xi)的(de)(de)重(zhong)要(yao)組成(cheng)部(bu)分(fen)(fen)(fen)(fen)(fen)，將推(tui)動我國(guo)生(sheng)態(tai)(tai)(tai)(tai)(tai)環境(jing)治理現(xian)代化(hua)(hua)(hua)水平不斷提升，實現(xian)人與自然和(he)諧共(gong)生(sheng)的(de)(de)現(xian)代化(hua)(hua)(hua)。

　　生態環境分區管控是生態環境系統治理、依法治理的必(bi)然要求。生(sheng)(sheng)態(tai)環境(jing)(jing)分(fen)區管(guan)(guan)(guan)控實現了生(sheng)(sheng)態(tai)環境(jing)(jing)從單(dan)一(yi)、分(fen)別治理到系統(tong)、整體治理的(de)(de)轉(zhuan)變。黨(dang)的(de)(de)十八大以(yi)(yi)來(lai)，以(yi)(yi)習(xi)近(jin)平同(tong)志為(wei)核心的(de)(de)黨(dang)中(zhong)央不(bu)斷(duan)推(tui)進生(sheng)(sheng)態(tai)文明(ming)(ming)制(zhi)度(du)(du)體系建設(she)，不(bu)斷(duan)健全生(sheng)(sheng)態(tai)文明(ming)(ming)領域(yu)的(de)(de)統(tong)籌協調機制(zhi)，構建以(yi)(yi)空(kong)間(jian)治理和(he)空(kong)間(jian)結構優化為(wei)主要內(nei)容(rong)的(de)(de)空(kong)間(jian)規劃體系，推(tui)行“多規合一(yi)”和(he)“三線一(yi)單(dan)”等制(zhi)度(du)(du)，加強(qiang)(qiang)對生(sheng)(sheng)態(tai)環境(jing)(jing)的(de)(de)統(tong)一(yi)監管(guan)(guan)(guan)。但在實踐探索(suo)中(zhong)還存在制(zhi)度(du)(du)認識不(bu)到位(wei)、體系不(bu)健全、應用廣度(du)(du)深度(du)(du)不(bu)足、責任(ren)分(fen)工(gong)不(bu)明(ming)(ming)確等問題。加強(qiang)(qiang)生(sheng)(sheng)態(tai)環境(jing)(jing)分(fen)區管(guan)(guan)(guan)控不(bu)是(shi)(shi)要另(ling)起爐灶，而(er)是(shi)(shi)要進一(yi)步明(ming)(ming)確分(fen)區管(guan)(guan)(guan)控制(zhi)度(du)(du)建設(she)的(de)(de)工(gong)作任(ren)務，厘清分(fen)區管(guan)(guan)(guan)控制(zhi)度(du)(du)的(de)(de)定位(wei)和(he)內(nei)涵，強(qiang)(qiang)化制(zhi)度(du)(du)的(de)(de)應用創新和(he)政策配(pei)套，更(geng)好(hao)地統(tong)籌生(sheng)(sheng)態(tai)環境(jing)(jing)保護和(he)經濟社會發展(zhan)(zhan)，為(wei)發展(zhan)(zhan)“明(ming)(ming)底線”“劃邊框”，而(er)不(bu)是(shi)(shi)“一(yi)刀切”或(huo)“翻燒餅”，真正實現以(yi)(yi)高水平保護支撐高質(zhi)量發展(zhan)(zhan)。

　　實施生(sheng)態(tai)(tai)環境(jing)分(fen)區管(guan)控(kong)也(ye)是(shi)生(sheng)態(tai)(tai)環境(jing)依法(fa)(fa)治理的具(ju)體體現。堅(jian)持用最(zui)(zui)嚴格的制(zhi)(zhi)度、最(zui)(zui)嚴密的法(fa)(fa)治保(bao)護(hu)生(sheng)態(tai)(tai)環境(jing)，是(shi)習(xi)近平生(sheng)態(tai)(tai)文明思想的重要原則。2014年修訂(ding)環境(jing)保(bao)護(hu)法(fa)(fa)，首次將“劃定(ding)生(sheng)態(tai)(tai)保(bao)護(hu)紅線，實行嚴格保(bao)護(hu)”寫入(ru)法(fa)(fa)律。此后，長江(jiang)保(bao)護(hu)法(fa)(fa)、黃(huang)河保(bao)護(hu)法(fa)(fa)、海南(nan)自由貿易港法(fa)(fa)、青藏(zang)高原生(sheng)態(tai)(tai)保(bao)護(hu)法(fa)(fa)、海洋環境(jing)保(bao)護(hu)法(fa)(fa)和(he)43部地方性法(fa)(fa)規均對加(jia)強生(sheng)態(tai)(tai)環境(jing)分(fen)區管(guan)控(kong)、實施生(sheng)態(tai)(tai)環境(jing)準(zhun)(zhun)入(ru)清單管(guan)理作出規定(ding)。下一步(bu)，應進(jin)一步(bu)推動將生(sheng)態(tai)(tai)環境(jing)分(fen)區管(guan)控(kong)要求納入(ru)相關(guan)法(fa)(fa)律法(fa)(fa)規制(zhi)(zhi)定(ding)修訂(ding)，鼓勵制(zhi)(zhi)定(ding)更多相關(guan)的地方性法(fa)(fa)規，同(tong)時(shi)制(zhi)(zhi)定(ding)和(he)完善相關(guan)的技術規范和(he)標準(zhun)(zhun)體系(xi)。

　　生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)分(fen)區管(guan)(guan)控是生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)源頭治(zhi)(zhi)(zhi)理(li)(li)(li)、科學(xue)治(zhi)(zhi)(zhi)理(li)(li)(li)的(de)制度設計。生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)分(fen)區管(guan)(guan)控的(de)實(shi)(shi)質是要加(jia)強源頭治(zhi)(zhi)(zhi)理(li)(li)(li)、科學(xue)治(zhi)(zhi)(zhi)理(li)(li)(li)、精準治(zhi)(zhi)(zhi)理(li)(li)(li)，嚴(yan)守生(sheng)(sheng)(sheng)態(tai)(tai)(tai)保護紅線(xian)(xian)、環(huan)境(jing)質量底線(xian)(xian)、資源利(li)用上線(xian)(xian)，科學(xue)指導(dao)各類開發保護建(jian)設活動(dong)。我國生(sheng)(sheng)(sheng)態(tai)(tai)(tai)文(wen)明建(jian)設仍處于壓(ya)力(li)疊(die)加(jia)、負重前(qian)行的(de)關鍵期(qi)，資源壓(ya)力(li)較大、環(huan)境(jing)容量有限、生(sheng)(sheng)(sheng)態(tai)(tai)(tai)系(xi)統(tong)脆弱的(de)國情沒有改變。同時，我國生(sheng)(sheng)(sheng)態(tai)(tai)(tai)系(xi)統(tong)的(de)多樣性和(he)復(fu)雜性要求(qiu)在(zai)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)文(wen)明建(jian)設中堅持分(fen)類差(cha)異化管(guan)(guan)理(li)(li)(li)，要立足各類主體功能定(ding)位(wei)，把握不同區域生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)的(de)特點、承載(zai)力(li)及主要問題，實(shi)(shi)施分(fen)區分(fen)類管(guan)(guan)控策略，實(shi)(shi)現生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境(jing)管(guan)(guan)理(li)(li)(li)的(de)精細化。

　　《意見》由此明(ming)確了三類生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)分(fen)區管(guan)控單(dan)(dan)(dan)元(yuan)——優(you)先保(bao)護(hu)(hu)單(dan)(dan)(dan)元(yuan)、重(zhong)點管(guan)控單(dan)(dan)(dan)元(yuan)和(he)(he)(he)一般管(guan)控單(dan)(dan)(dan)元(yuan)。生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)優(you)先保(bao)護(hu)(hu)單(dan)(dan)(dan)元(yuan)加強(qiang)生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)系統保(bao)護(hu)(hu)和(he)(he)(he)功能(neng)維護(hu)(hu)；生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)重(zhong)點管(guan)控單(dan)(dan)(dan)元(yuan)針對突出生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)問題、強(qiang)化(hua)污染物排放(fang)管(guan)控和(he)(he)(he)環(huan)(huan)(huan)境(jing)風險防控；其他(ta)區域保(bao)持生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)質量(liang)基本穩(wen)定。提升(sheng)生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)分(fen)區管(guan)控的科學化(hua)，除需加強(qiang)基礎(chu)理(li)論研究和(he)(he)(he)天空(kong)地一體化(hua)監測以(yi)(yi)(yi)外，還要加強(qiang)國家和(he)(he)(he)省級生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)分(fen)區管(guan)控系統的信(xin)息共享，強(qiang)化(hua)對數(shu)據(ju)管(guan)理(li)、調整更新(xin)、實(shi)施(shi)應用、跟蹤評估、監督管(guan)理(li)的支撐作(zuo)用，提升(sheng)智慧(hui)決策服(fu)務效(xiao)能(neng)。《意見》提出，全面推進生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)分(fen)區管(guan)控的首要任務就是制定以(yi)(yi)(yi)落實(shi)生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)(hu)紅線、環(huan)(huan)(huan)境(jing)質量(liang)底(di)線、資源(yuan)利用上線硬(ying)約束為(wei)重(zhong)點，以(yi)(yi)(yi)生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)管(guan)控單(dan)(dan)(dan)元(yuan)為(wei)基礎(chu)，以(yi)(yi)(yi)生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)準入清單(dan)(dan)(dan)為(wei)手段，以(yi)(yi)(yi)信(xin)息平臺為(wei)支撐的生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)分(fen)區管(guan)控方案，以(yi)(yi)(yi)此作(zuo)為(wei)加強(qiang)生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)分(fen)區管(guan)控、推進生(sheng)態(tai)(tai)(tai)(tai)(tai)(tai)環(huan)(huan)(huan)境(jing)治理(li)現代(dai)化(hua)的藍圖(tu)。

　　生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)分(fen)(fen)區(qu)(qu)管(guan)(guan)(guan)控(kong)(kong)(kong)是(shi)生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)協(xie)同(tong)(tong)(tong)治(zhi)(zhi)理(li)、有效治(zhi)(zhi)理(li)的(de)(de)(de)基本遵循。政(zheng)(zheng)策(ce)(ce)的(de)(de)(de)有效性(xing)在(zai)于保(bao)持(chi)(chi)定力(li)、嚴(yan)格落實、協(xie)同(tong)(tong)(tong)推進(jin)(jin)。生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)分(fen)(fen)區(qu)(qu)管(guan)(guan)(guan)控(kong)(kong)(kong)是(shi)一(yi)個(ge)系(xi)統工程，需要(yao)堅持(chi)(chi)黨的(de)(de)(de)領導(dao)，管(guan)(guan)(guan)控(kong)(kong)(kong)方(fang)案(an)的(de)(de)(de)編制要(yao)堅持(chi)(chi)國家指(zhi)導(dao)、省(sheng)級統籌(chou)、市級落地(di)的(de)(de)(de)原(yuan)則，并(bing)要(yao)充分(fen)(fen)做好(hao)與(yu)國民經濟(ji)和(he)社會發展(zhan)規劃(hua)以及國土空間規劃(hua)“一(yi)張圖”系(xi)統的(de)(de)(de)銜接(jie)。同(tong)(tong)(tong)時推進(jin)(jin)國家和(he)省(sheng)級生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)分(fen)(fen)區(qu)(qu)管(guan)(guan)(guan)控(kong)(kong)(kong)系(xi)統與(yu)其他業務系(xi)統的(de)(de)(de)信息共(gong)享、業務協(xie)同(tong)(tong)(tong)，并(bing)且統籌(chou)開(kai)展(zhan)生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)分(fen)(fen)區(qu)(qu)管(guan)(guan)(guan)控(kong)(kong)(kong)方(fang)案(an)的(de)(de)(de)定期調(diao)整與(yu)動(dong)態(tai)(tai)更(geng)新。通過生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)分(fen)(fen)區(qu)(qu)管(guan)(guan)(guan)控(kong)(kong)(kong)服(fu)務，加強(qiang)區(qu)(qu)域(yu)整體性(xing)保(bao)護(hu)和(he)系(xi)統性(xing)治(zhi)(zhi)理(li)，支撐優化重(zhong)大(da)(da)生(sheng)(sheng)(sheng)產力(li)布(bu)局，服(fu)務國家重(zhong)大(da)(da)基礎設(she)施(shi)建設(she)，保(bao)障國家重(zhong)大(da)(da)戰略實施(shi)。強(qiang)化生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)保(bao)護(hu)政(zheng)(zheng)策(ce)(ce)協(xie)同(tong)(tong)(tong)，在(zai)國家和(he)省(sheng)級層面設(she)立(li)統籌(chou)協(xie)調(diao)機構，依托分(fen)(fen)區(qu)(qu)管(guan)(guan)(guan)控(kong)(kong)(kong)方(fang)案(an)協(xie)同(tong)(tong)(tong)推進(jin)(jin)區(qu)(qu)域(yu)和(he)流域(yu)的(de)(de)(de)降碳、減(jian)污、擴綠(lv)、增長，同(tong)(tong)(tong)時將(jiang)生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)分(fen)(fen)區(qu)(qu)管(guan)(guan)(guan)控(kong)(kong)(kong)要(yao)求納入生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)有關標準(zhun)、政(zheng)(zheng)策(ce)(ce)等(deng)制定修訂中。積極(ji)開(kai)展(zhan)生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)分(fen)(fen)區(qu)(qu)管(guan)(guan)(guan)控(kong)(kong)(kong)與(yu)環(huan)境(jing)(jing)(jing)(jing)(jing)影響評價、排污許可(ke)、環(huan)境(jing)(jing)(jing)(jing)(jing)監測、執(zhi)法監管(guan)(guan)(guan)等(deng)協(xie)調(diao)聯動(dong)改革試點，探(tan)索構建全鏈條生(sheng)(sheng)(sheng)態(tai)(tai)環(huan)境(jing)(jing)(jing)(jing)(jing)管(guan)(guan)(guan)理(li)體系(xi)，推動(dong)形成(cheng)美麗(li)中國建設(she)的(de)(de)(de)政(zheng)(zheng)策(ce)(ce)合力(li)，營造全社會共(gong)同(tong)(tong)(tong)參與(yu)的(de)(de)(de)良好(hao)氛(fen)圍。

　　《日(ri)報》（2024年03月26日(ri)?02版）