1. Urban-rural environmental governance model, the focus of environmental governance has always been cities and industries, and rural environmental governance is basically a situation in which "garbage is blown away by the wind and sewage is evaporated".
2. Most laws and regulations are formulated for urban environmental protection, and the detection, control and protection system of agricultural and rural pollution has not yet been established.
3. Compared with the specialized environmental protection institutions in cities, the rural environmental governance institutions are not perfect, and the grass-roots environmental protection forces are seriously insufficient, making it difficult to form an effective restraint mechanism.
4. Long-term insufficient investment in rural environmental governance has led to weak rural environmental infrastructure and a serious shortage of rural infrastructure.
"Urban and rural governance" is the core of building a unified environmental governance system. From the above analysis, it can be seen that rural environmental governance is imminent, and the core of accelerating the construction of urban-rural integrated environmental governance system lies in "urban-rural joint governance". Specific measures are as follows:
First, improve the property right system of natural resources assets.
1. Establish a unified registration system for confirmation of rights.
Adhere to the public ownership of resources and the legality of property rights, and clearly define the subject of property rights of various natural resources assets in all national spaces. All natural ecological spaces, such as water, forests, mountains, grasslands, wasteland, beaches, etc. , ownership registration will be carried out, and the boundaries between ownership by the whole people and collective ownership, ownership by the whole people and ownership by governments at all levels will be gradually delineated, and the boundaries between different collective ownership will be delineated to promote the legalization of ownership registration.
2. Establish a clear property right system of natural resources.
Make a list of rights and clarify the rights of various natural resources property rights. Dealing with the relationship between ownership and use right and innovating the realization forms of state ownership and collective ownership of natural resources can promote the separation of ownership and use right, clarify the ownership relationship and power and responsibility of possession, use, income and disposal, and appropriately expand the power and responsibility of transferring, transferring, leasing, mortgage, guarantee and shareholding of use right. Clarify the rights of land owners and users of state-owned farms, forest farms and pastures. A paid transfer system covering all kinds of natural resources assets owned by the whole people will be established in an all-round way, and free or low-cost transfer is strictly prohibited. Make overall plans and strengthen the construction of natural resource assets trading platform.
3. Improve the national natural resource asset management system.
In accordance with the principle of separation of owners and supervisors, and one department is responsible for one thing, we should integrate the responsibilities of scattered owners of natural resources owned by the whole people, and set up institutions to uniformly exercise the ownership of all kinds of natural resources owned by the whole people, such as mineral deposits, streams, forests, mountains, grasslands, wasteland, sea areas and beaches, and be responsible for the circulation of natural resources owned by the whole people.
4. Explore the establishment of a system of exercising ownership at different levels.
For the natural resource assets owned by the whole people, according to the different types of resources and their importance in ecology, economy and national defense, we should study and implement the system of central and local hierarchical agents exercising ownership responsibility to realize the unity of efficiency and fairness. Distinguish between the list of resources and the spatial scope of direct ownership exercised by the central government under ownership by the whole people and ownership exercised by local governments under ownership by the whole people. The central government mainly exercises direct ownership of oil and gas, precious and rare mineral resources, key state-owned forest areas, rivers, lakes and cross-border rivers, wetlands and grasslands with important ecological functions, beaches, rare wildlife species and some national parks.
5, to carry out water flow and wetland property rights confirmation pilot.
Explore the establishment of a water rights system, carry out pilot projects to determine the rights of water ecological spaces such as waters and coastlines, and follow the principles of water ecological systematicness and integrity to divide the ownership, use rights and usage of clean water resources. Piloting the confirmation of wetland property rights in Gansu and Ningxia.
Second, establish a national space development and protection system.
1, improve the system of main functional areas.
Coordinate the planning of national and provincial major functional areas, improve regional policies based on major functional areas, and accelerate the adjustment and improvement of policies on finance, industry, investment, population mobility, construction land, resource development and environmental protection according to the different positioning of urbanization areas, major agricultural products producing areas and key ecological functional areas.
2. Improve the land and space use control system.
Simplify the top-down control system of land use indicators and adjust the practice of allocating indicators according to administrative regions and land use bases. The development intensity index is decomposed into various county-level administrative regions as a binding index to control the total amount of construction land. Expand use control to all natural ecological spaces, draw ecological red lines and strictly abide by them. It is strictly forbidden to change the use at will to prevent unreasonable development and construction activities from destroying the ecological red line. We will improve the monitoring system covering all land space and dynamically monitor land space changes.
3. Establish a national park system.
Strengthen the protection and sustainable utilization of important ecosystems, and reform the establishment system of nature reserves, scenic spots, cultural and natural heritage, geological parks and forest parks. All departments should reorganize the functions of the above-mentioned protected areas and rationally define the scope of national parks. The protection of national parks is stricter. Except for the transformation of indigenous living and production facilities and natural sightseeing, scientific research, education and tourism in the ecosystem, other development and construction are prohibited to protect the authenticity and integrity of natural ecology and natural cultural heritage. Strengthen the guidance of the national park pilot, and study and formulate the overall plan for establishing the national park system on the basis of the pilot. Build a long-term mechanism to protect rare wild animals and plants.
4. Improve the natural resources supervision system.
Gradually unify the related use control responsibilities scattered in various departments into one department, and uniformly exercise the use control responsibilities of all national spaces.
Third, establish a spatial planning system.
1, prepare the spatial planning.
Integrate all kinds of spatial plans compiled by various departments at present, and compile a unified spatial plan to achieve full coverage of the plan. Spatial planning is the guide of national spatial development, the spatial blueprint of sustainable development and the basic basis of various development and construction activities. Spatial planning is divided into national, provincial, municipal and county levels (the spatial planning scope of a city divided into districts is a municipal district). Study and establish a unified and standardized spatial planning mechanism. Encourage provincial-level spatial planning pilots. Prepare the spatial planning of Beijing-Tianjin-Hebei.
2. Promote the "multi-regulation integration" of cities and counties.
Support cities and counties to promote "multi-regulation integration", unify the preparation of spatial planning for cities and counties, and gradually form a blueprint for one city, one county and one plan. City and county spatial planning should unify land classification standards, delimit production space, living space and ecological space according to the requirements of main function orientation and provincial spatial planning, define the development boundaries of urban construction areas, industrial areas and rural settlements, and protect the boundaries of cultivated land, woodland, grassland, rivers, lakes and wetlands, and strengthen the overall planning of urban underground space. Strengthen the guidance of the pilot project of "multi-regulation integration" in cities and counties, study and formulate the guidelines and technical specifications for the preparation of spatial planning in cities and counties, and form a replicable and popularized experience.
3. Innovating the method of compiling city and county spatial planning.
Explore the standardized procedures of city and county spatial planning, expand social participation, and enhance the scientificity and transparency of planning. Encourage pilot areas to integrate planning departments. A department is responsible for the preparation of city and county spatial planning, and a planning review Committee composed of professionals and representatives of relevant parties may be established. The carrying capacity of resources and environment should be evaluated before planning, and the evaluation results should be used as the basic basis for planning. In the process of planning, we should solicit opinions from all sides, publish the draft plan in full, and fully listen to the opinions of local residents. After the planning is approved by the appraisal committee, it shall be examined and approved by the local people's congress and reported to the higher government departments for the record. Planning results should include planning texts and high-precision planning drawings, and be published on the Internet and other local media. Encourage local residents to supervise the implementation of the plan and report the development and construction behavior in violation of the plan. Local people's congresses and their standing committees regularly listen to reports on the implementation of spatial planning, and hold local governments accountable for violating the planning.
Four, improve the total resource management and total saving system.
1. Improve the strictest farmland protection system and land conservation and intensive use system.
Improve the basic farmland protection system, delimit the permanent basic farmland red line, and land the basic farmland at home according to the requirements of no reduction in area, no decline in quality and no change in use, and put it into storage as shown in the above picture, and implement strict protection. In addition to the location of national key construction projects stipulated by law, other construction shall not be occupied. Strengthen the evaluation and monitoring of cultivated land quality and strengthen the protection and improvement of cultivated land quality. We will improve the balance system of cultivated land occupation and compensation, control the total amount of cultivated land occupied by new construction land, and strictly implement the principle of cultivated land occupation and compensation, first occupation and then compensation, and dominance and compensation. Control and reduce the total amount of construction land, establish an incentive and restraint mechanism for economical and intensive land use, adjust the structure, revitalize the stock, and rationally arrange the annual land use plan.
2. Improve the strictest water resources management system.
According to the principles of water saving priority, spatial balance, systematic management and two-handed efforts, we will improve the total water consumption control system to ensure water safety. Accelerate the formulation of water allocation schemes for major river basins, strengthen overall planning at the provincial level, and improve the total water intake control index system at the provincial, city and county levels. Establish and improve the mechanism of saving and intensive water use, and promote the structural adjustment and optimal allocation of water resources. Improve the water resources demonstration system for planning and construction projects. Mainly through the means of price and tax, gradually establish the system of agricultural irrigation water control and quota management, and the system of planned water use and quota management for high water consumption industrial enterprises. Set up water quota access threshold in areas with serious water shortage, and strictly control the construction of high water consumption projects. Strengthen the protection of the origin of aquatic products and environmental restoration, control aquaculture, and build a protection mechanism for aquatic animals and plants. Improve the supervision and management of water functional areas and establish an unconventional water source promotion and use system.
3, the establishment of total energy consumption management and saving system.
Adhere to the priority of saving, strengthen the control of energy consumption intensity, and improve the energy-saving target responsibility system and reward system. Further improve the energy statistics system. Improve the energy-saving management system of key energy-using units and explore the implementation of the voluntary commitment mechanism for energy conservation. Improve the energy-saving standard system, and update the energy efficiency of energy-using products, energy consumption limits of high-energy-consuming industries, building energy efficiency and other standards in a timely manner. Reasonably determine the national total energy consumption target, and decompose it into provincial administrative regions and key energy-using units. Improve the promotion mechanism of energy-saving and low-carbon products and technical equipment, and regularly publish technical catalogues. Strengthen energy-saving assessment and review and energy-saving supervision. Strengthen support for the development of renewable energy, and gradually cancel the universal subsidies for fossil energy. Gradually establish a national total carbon emission control system and decomposition implementation mechanism, establish an effective mechanism to increase carbon sinks in forests, grasslands, wetlands and oceans, and strengthen international cooperation in dealing with climate change.
4. Establish a natural forest protection system.
Bring all natural forests into the scope of protection. Establish a national timber forest reserve system. Gradually promote the separation of government and enterprise in state-owned forest areas, and improve the management and protection mechanism of public welfare forests in state-owned forest farms based on purchasing services. Improve the collective forest right system, stabilize the contracting right, expand the management right, and improve the forest right mortgage loan and circulation system.
5. Establish grassland protection system.
Stabilize and improve the grassland contract management system, realize the "four households" of grassland contract land, area, contract and certificate, and standardize the circulation of grassland management rights. Implement the basic grassland protection system to ensure that the basic grassland area does not decrease, the quality does not decline, and the use does not change. We will improve the compensation mechanism for grassland ecological protection, and implement systems such as grazing prohibition, grazing suspension, rotational grazing by zoning, and balance between grass and livestock. Strengthen the approval and supervision of grassland requisition and occupation, and strictly control the use of grassland for non-grazing.
6. Establish a wetland protection system.
All wetlands are included in the scope of protection, and it is forbidden to requisition or occupy internationally important wetlands, national important wetlands and wetland nature reserves without authorization. Determine the functions of various wetlands, standardize the protection and utilization behavior, and establish the ecological restoration mechanism of wetlands.
7. Establish a desertification land protection system.
The contiguous desertified land that does not have the control conditions for the time being will be classified as desertified land protection areas. Establish a strict protection system, strengthen the construction of closed protection infrastructure, strengthen the management of desertification land, increase vegetation, rationally develop sand industry, improve the management and protection mechanism based on purchasing services, and explore a new mechanism combining development and management.
8. Improve the marine resources development and protection system.
Implement the system of marine main functional zones, determine the main functions of islands in offshore waters, and guide, control and standardize all kinds of marine island use behaviors. The total amount of reclamation is controlled, and the reclamation area is managed by binding indicators. Establish a natural shoreline retention rate control system. Improve the total management system of marine fishery resources, strictly implement the fishing ban system, implement offshore fishing quota management, and control the scale of offshore and tidal flat farming. Improve the marine supervision system.
9, improve the management system of mineral resources development and utilization.
Establish a survey and evaluation system for the development and utilization level of mineral resources, and strengthen the registration of mineral resources and the registration management of paid time occupation. Establish an intensive development mechanism of mineral resources, improve the concentration of mining enterprises and encourage large-scale development. Improve national standards such as recovery rate of important mineral resources, mineral processing recovery rate and comprehensive utilization rate. Improve the economic policies that encourage the improvement of the utilization level of mineral resources. Establish an information publicity system for efficient and comprehensive utilization of mining enterprises, and establish a "blacklist" system for mining rights holders. Improve the industrialization support mechanism for recycling important mineral resources. Improve the mine geological environment protection and land reclamation system.
10, improve the resource recycling system.
Establish and improve the statistical system of resource output rate. Implement the extended producer responsibility system, and promote producers to implement the responsibilities of waste recycling and disposal. Establish a recycling system of aquaculture waste to realize the organic combination and recycling development of aquaculture. Accelerate the establishment of a compulsory garbage classification system. Formulate a recycling catalogue of renewable resources, and implement compulsory recycling of low-value wastes such as composite packaging materials, batteries and agricultural films. Accelerate the formulation of standards for resource classification and recycling. Establish a system to promote the use of recycled products and raw materials, and relevant raw material consuming enterprises should use a certain proportion of recycled products. Improve the system of restricting the use of disposable items. Implement and improve the tax policy of comprehensive utilization of resources and promoting the development of circular economy. Formulate a catalogue of circular economy technologies, and implement policies such as giving priority to government procurement and subsidizing loans.
Five, improve the paid use of resources and ecological compensation system.
1. Accelerate the price reform of natural resources and their products.
According to the principle of the unity of cost and benefit, fully consider the social bearing capacity, establish a cost evaluation mechanism for the development and utilization of natural resources, and incorporate the rights and interests of resource owners and ecological environment damage into the price formation mechanism of natural resources and their products. Strengthen the price supervision of natural monopoly links, establish a pricing cost supervision and examination system and a price adjustment mechanism, and improve the price decision-making procedure and information disclosure system. We will promote the comprehensive reform of agricultural water prices, fully implement the progressive price increase system for non-residents who exceed the plan and quota, and fully implement the ladder price system for urban residents' water use.
2. Improve the system of paid land use.
Expand the scope of paid use of state-owned land, expand the proportion of bidding, auction and hanging, reduce the allocation of non-public land, and incorporate the revenue and expenditure of state-owned land transfer into budget management. Reform and improve the supply mode of industrial land, explore the implementation of flexible transfer period and long-term lease, rent first and then rent, and the combination of rent and loan. Improve the land price formation mechanism and evaluation system, improve the land grade price system, and straighten out the relationship between land-related transfer fees, rents and taxes. Establish an effective mechanism to adjust the reasonable price comparison between industrial land and residential land, improve the land price level of industrial land transfer, and reduce the proportion of industrial land. Explore ways to improve the paid use system of state-owned agricultural land through land contracting and leasing.
3. Improve the system of paid use of mineral resources.
Improve the transfer system of mining rights, establish a transfer method of exploration rights and mining rights that meets the requirements of market economy and mining laws, implement market-oriented transfer in principle, and incorporate the transfer income and expenditure of state-owned mineral resources into budget management. Clarify the property rights relationship among owners, investors and users in paid acquisition, occupation and mining, and study and establish a national equity fund system for mineral resources. Adjust the standards of royalties for exploration and mining rights and the minimum investment standards for mineral resources exploration. Promote the construction of a unified national mining rights trading platform and increase the disclosure of mining rights transfer information.
4. Improve the system of paid use of islands.
Establish an adjustment mechanism for the collection standards of sea areas and uninhabited islands. Establish and improve the system of bidding, auction and transfer of the right to use sea areas and uninhabited islands.
5. Accelerate the reform of resources and environmental taxes and fees.
Straighten out the relationship between taxes and fees of natural resources and their products, clarify their respective functions, and reasonably determine the scope of tax control. Accelerate the reform of resource tax ad valorem, gradually expand resource tax to occupy all kinds of natural ecological space, and carry out pilot reform of groundwater resource tax in some areas. Accelerate the legislation of environmental protection tax.
6. Improve the ecological compensation mechanism.
Explore the establishment of a diversified compensation mechanism, gradually increase the transfer payment to key ecological functional areas, and improve the incentive and restraint mechanism linking the effectiveness of ecological protection with the allocation of funds. Formulate a horizontal ecological compensation mechanism based on local compensation and supported by the central government. Encourage all regions to carry out pilot projects of ecological compensation, continue to promote pilot projects of water environment compensation in Xin 'anjiang River, promote pilot projects of cross-regional ecological compensation in Beijing-Tianjin-Hebei water conservation area, Jiuzhou River in Guangxi and Tingjiang-Hanjiang River in Fujian, and explore pilot projects of ecological compensation in water-sensitive areas of the Yangtze River basin.
7. Improve the use mechanism of ecological protection and restoration funds. According to the requirements of the system management of scenic forests, farmland and lakes, we will improve the relevant fund management measures and integrate existing policies and channels. While deepening the comprehensive improvement of rivers in the country, it is more used for the protection and restoration of national ecological security barriers such as Qinghai-Tibet Plateau ecological barrier, Loess Plateau-Sichuan-Yunnan ecological barrier, northeast forest belt, northern sand control belt and southern hilly and mountainous areas.
8. Establish a system for recuperation of cultivated land, grasslands, rivers and lakes. Formulate plans for the renovation of cultivated land, grasslands, rivers and lakes, adjust the use of cultivated land in areas with serious pollution and serious groundwater overexploitation, and gradually withdraw from steep slopes of 25 degrees or more that are not suitable for cultivation and endanger the ecology in basic farmland. Establish a long-term mechanism to consolidate the achievements of returning farmland to forests and grasslands and returning grazing to grasslands. We will carry out the pilot project of returning farmland to lakes and wetting, and promote the pilot project of remediation of heavy metal pollution in soil in Changsha, Zhuzhou and Xiangtan and the pilot project of comprehensive management of groundwater overexploitation in North China.