中国环境保护战略政策70年历史变迁与改革方向
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摘要
系统地回顾了新中国成立70年以来环境保护战略政策的历史变迁,分析其演进脉络、阶段性变化特征和取得的成效,对于制定新时代国家生态环境保护战略政策、全面推进生态文明和"美丽中国"建设具有重大现实意义.以环境保护战略政策历史演进为主线,将新中国成立70年以来的环境保护战略政策历史变迁与发展划分为5个阶段:①非理性战略探索阶段(1949—1971年);②建立环境保护三大政策和八项管理制度的环境保护基本国策(1972—1991年);③强化重点流域、区域污染治理的可持续发展战略(1992—2000年);④控制污染物排放总量、推进生态环境示范创建的环境友好型战略(2001—2012年);⑤推进环境质量改善和"美丽中国"建设的生态文明战略(2013年至今).分析表明,我国基本形成了符合国情且较为完善的环境战略政策体系,在生态文明和环境保护法制与体制改革、生态环境目标责任制、生态环境市场经济政策体系以及多元有效的生态环境治理格局下取得了重大成就,对环境保护事业发展发挥了不可替代的支撑作用,为深入推进生态文明建设和"美丽中国"伟大目标实现提供了重要保障.结合新时代生态文明建设和"美丽中国"建设的目标需求,提出了未来我国生态环境保护战略政策的基本走向、改革目标,指出了管理体制、生态法治、空间管控、市场机制、公众参与、责任考核等六大改革方向.
This paper systematically reviews the historical change of China's environmental protection strategies,analyzes the evolution of environmental protection policies,which is of great significance for formulating the national ecological environmental strategy and comprehensively promoting ecological civilization and‘beautiful China'in the new era. The paper systematically analyzed the historical changes and development of environmental protection strategies and policies over the past 70 years in China from a historical perspective.Overall,the development of China's environmental protection strategies and policies has experienced five stages: namely the stage of onesided misconception( 1949-1971); environmental protection as the basic national strategy for establishing three major policies and eight management systems for environmental protection( 1972-1991); sustainable development strategy for strengthening pollution control of the key watersheds and regions( 1992-2000); environmentally friendly strategy for implementing pollution emission control and demonstrating eco-provinces and eco-cities( 2001-2012); and ecological civilization strategy for promoting improvement of environmental quality and construction of beautiful China( 2013-). The results showed that China has basically formed a relatively complete environmental strategy and policy system in line with its national conditions,has achieved remarkable achievements in the establishment of a sound environmental law system,environmental management system,environmental responsibility system,market based mechanism for eco-environmental protection,eco-environmental governance pattern,which plays an irreplaceable supporting role in the development of environmental protection and provides an important guarantee for further promoting the construction of ecological civilization and the realization of the great goal of‘beautiful China'. Based on the needs for the establishment of ecological civilization and‘beautiful China'in the new era,the paper puts forward the development suggestions of the basic reform objectives and six reform directions as institutional arrangement,rule of law,spatial governance,market mechanism,social participation and performance responsibility for building ecological civilization and‘beautiful China'.
This paper systematically reviews the historical change of China's environmental protection strategies,analyzes the evolution of environmental protection policies,which is of great significance for formulating the national ecological environmental strategy and comprehensively promoting ecological civilization and‘beautiful China'in the new era. The paper systematically analyzed the historical changes and development of environmental protection strategies and policies over the past 70 years in China from a historical perspective.Overall,the development of China's environmental protection strategies and policies has experienced five stages: namely the stage of onesided misconception( 1949-1971); environmental protection as the basic national strategy for establishing three major policies and eight management systems for environmental protection( 1972-1991); sustainable development strategy for strengthening pollution control of the key watersheds and regions( 1992-2000); environmentally friendly strategy for implementing pollution emission control and demonstrating eco-provinces and eco-cities( 2001-2012); and ecological civilization strategy for promoting improvement of environmental quality and construction of beautiful China( 2013-). The results showed that China has basically formed a relatively complete environmental strategy and policy system in line with its national conditions,has achieved remarkable achievements in the establishment of a sound environmental law system,environmental management system,environmental responsibility system,market based mechanism for eco-environmental protection,eco-environmental governance pattern,which plays an irreplaceable supporting role in the development of environmental protection and provides an important guarantee for further promoting the construction of ecological civilization and the realization of the great goal of‘beautiful China'. Based on the needs for the establishment of ecological civilization and‘beautiful China'in the new era,the paper puts forward the development suggestions of the basic reform objectives and six reform directions as institutional arrangement,rule of law,spatial governance,market mechanism,social participation and performance responsibility for building ecological civilization and‘beautiful China'.
引文
[1]刘建伟．建国后中国共产党对环境问题认识的演进[J]．马克思主义中国化的理论与实践:理论导刊，2011(10):12-14.LIU Jianwei. The evolution of the Chinese Communist Party's understanding of environmental issues after the founding of New China[J].The Theory and Practice of Marxism in China:Journal of Socialist Theory Guide,2011(10):12-14.
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[9]中国工程院，环境保护部．中国环境宏观战略研究[M]．北京:中国环境科学出版社，2011.
[10]王灿发．从淮河治污看我国跨行政区水污染防治的经验和教训[J]．环境保护，2007(7):30-35.WANG Canfa. Experience and lessons from water pollution control in China's cross-administrative areas from the pollution control of the Huai River[J].Environmental Protection,2007(7):30-35.
[11]解振华．我国的环境问题及保护措施[J]．中国环境管理干部学院学报，1999(1):1-5.XIE Zhenhua. Environmental problems and protection measures in China[J].Journal of Environmental Management College of China,1999(1):1-5.
[12]王金南，蒋春来，张文静．关于“十三五”污染物排放总量控制制度改革的思考[J]．环境保护，2015,43(21):21-24.WANG Jinnan,JIANG Chunlai,ZHANG Wenjing. Reform on China's total emission control in the ‘13thFive-Years Plan’[J].Environmental Protection,2015,43(21):21-24.
[13]王金南，万军，王倩，等．改革开放40年与中国生态环境保护规划发展[J]．中国环境管理，2018,10(6):1-19.WANG Jinnan,WAN Jun,WANG Qian,et al. The development of China's ecological and environmental planning in forty years of reform and opening-up[J]. China Environmental Management,2018,10(6):1-19.
[14]周生贤．加快推进历史性转变努力开创环境保护工作新局面:在2006年全国环境保护厅局长会议上的讲话[J]．环境保护，2006(9):4-15.ZHOU Shengxian.Accelerate the historical transformation and strive to create a new situation in environmental protection work:a speech at the 2006 National Environmental Protection Agency Directors Meeting[J].Environmental Protection,2006(9):4-15.
[15]陈吉宁．以改善环境质量为核心全力打好补齐环保短板攻坚战[J]．环境保护，2016,44(2):10-24.CHEN Jining. Taking the improvement of environmental quality as core work and devoting every effort to fight the battle of environmental protection[J]. Environmental Protection,2016,44(2):10-24.
[16]李干杰．以习近平新时代中国特色社会主义思想为指导奋力开创新时代生态环境保护新局面[J]．环境保护，2018,46(5):7-19.LI Ganjie. Taking Xi Jinping's thought on socialism with Chinese characteristics for a new era as a guide to open a new situation of ecological environment protection[J]. Environmental Protection,2018,46(5):7-19.
[17]王金南，秦昌波，雷宇，等．构建国家环境质量管理体系的战略思考[J]．环境保护，2016,44(11):14-18.WANG Jinnan,QIN Changbo,LEI Yu,et al. A strategic idea on establishing national environmental quality management system(NEQMS)in China[J].Environmental Protection,2016,44(11):14-18.
[18]董战峰，郝春旭，葛察忠，等．环境经济政策年度报告2018[J]．环境经济，2019(7):12-39.DONG Zhanfeng,HAO Chunxu,GE Chazhong,et al. Annual report on environmental economic policy in 2018[J]. Environmental Economy,2019(7):12-39.
[19]李干杰．深入贯彻落实习近平生态文明思想奋力谱写美丽中国建设新篇章[J]．中国生态文明，2018(6):11-15.LI Ganjie. In-depth implementation of Xi Jinping's ecological civilization thought and struggling to write a new chapter in the construction of beautiful China[J]. China Ecological Civilization,2018(6):11-15.
[20]解振华．中国改革开放40年生态环境保护的历史变革:从“三废”治理走向生态文明建设[J]．中国环境管理，2019,11(4):5-10.XIE Zhenhua. The historical change of ecological environmental protection in China's 40 years of reform and opening up:from the‘three wastes’governance to the ecological civilization construction[J].China Environmental Management,2019,11(4):5-10.
[2]陆浩，李干杰．中国环境保护形势与对策[M]．北京:中国环境出版集团，2018.
[3]张坤民．中国环境保护事业60年[J]．中国人口·资源与环境，2010,20(6):1-5.ZHANG Kunmin.China's environmental protection of the past sixty years since 1949[J]. China Population Resources and Environment,2010,20(6):1-5.
[4]曲格平．中国环境保护事业发展历程提要[J]．环境保护，1988(3):2-5.QU Geping.Summary of the development of China's environmental protection[J].Environmental Protection,1988(3):2-5.
[5]张连辉，赵凌云．1953—2003年间中国环境保护政策的历史演变[J]．中国经济史研究，2007(4):122-123.ZHANG Lianhui,ZHAO Lingyun. Historical evolution of China's environmental protection policy from 1953 to 2003[J]. Chinese Economic History Research,2007(4):122-123.
[6]曲格平．中国环保事业的回顾与展望[J]．中国环境管理干部学院学报，1999,9(3):1-5.QU Geping. Review and prospect of China's environmental protection[J]. Journal of Environmental Management College of China,1999,9(3):1-5.
[7]王玉庆．中国环境保护政策的历史变迁[J]．环境与可持续发展，2018,43(4):5-9.WANG Yuqing. Historical changes of China's environmental protection policy[J]. Environment and Sustainable Development,2018,43(4):5-9.
[8]曲格平．中国环境保护四十年回顾及思考(回顾篇)[J]．环境保护，2013,41(10):10-17.QU Geping. Review and reflection on China's environmental protection for 40 years(review)[J]. Environmental Protection,2013,41(10):10-17.
[9]中国工程院，环境保护部．中国环境宏观战略研究[M]．北京:中国环境科学出版社，2011.
[10]王灿发．从淮河治污看我国跨行政区水污染防治的经验和教训[J]．环境保护，2007(7):30-35.WANG Canfa. Experience and lessons from water pollution control in China's cross-administrative areas from the pollution control of the Huai River[J].Environmental Protection,2007(7):30-35.
[11]解振华．我国的环境问题及保护措施[J]．中国环境管理干部学院学报，1999(1):1-5.XIE Zhenhua. Environmental problems and protection measures in China[J].Journal of Environmental Management College of China,1999(1):1-5.
[12]王金南，蒋春来，张文静．关于“十三五”污染物排放总量控制制度改革的思考[J]．环境保护，2015,43(21):21-24.WANG Jinnan,JIANG Chunlai,ZHANG Wenjing. Reform on China's total emission control in the ‘13thFive-Years Plan’[J].Environmental Protection,2015,43(21):21-24.
[13]王金南，万军，王倩，等．改革开放40年与中国生态环境保护规划发展[J]．中国环境管理，2018,10(6):1-19.WANG Jinnan,WAN Jun,WANG Qian,et al. The development of China's ecological and environmental planning in forty years of reform and opening-up[J]. China Environmental Management,2018,10(6):1-19.
[14]周生贤．加快推进历史性转变努力开创环境保护工作新局面:在2006年全国环境保护厅局长会议上的讲话[J]．环境保护，2006(9):4-15.ZHOU Shengxian.Accelerate the historical transformation and strive to create a new situation in environmental protection work:a speech at the 2006 National Environmental Protection Agency Directors Meeting[J].Environmental Protection,2006(9):4-15.
[15]陈吉宁．以改善环境质量为核心全力打好补齐环保短板攻坚战[J]．环境保护，2016,44(2):10-24.CHEN Jining. Taking the improvement of environmental quality as core work and devoting every effort to fight the battle of environmental protection[J]. Environmental Protection,2016,44(2):10-24.
[16]李干杰．以习近平新时代中国特色社会主义思想为指导奋力开创新时代生态环境保护新局面[J]．环境保护，2018,46(5):7-19.LI Ganjie. Taking Xi Jinping's thought on socialism with Chinese characteristics for a new era as a guide to open a new situation of ecological environment protection[J]. Environmental Protection,2018,46(5):7-19.
[17]王金南，秦昌波，雷宇，等．构建国家环境质量管理体系的战略思考[J]．环境保护，2016,44(11):14-18.WANG Jinnan,QIN Changbo,LEI Yu,et al. A strategic idea on establishing national environmental quality management system(NEQMS)in China[J].Environmental Protection,2016,44(11):14-18.
[18]董战峰，郝春旭，葛察忠，等．环境经济政策年度报告2018[J]．环境经济，2019(7):12-39.DONG Zhanfeng,HAO Chunxu,GE Chazhong,et al. Annual report on environmental economic policy in 2018[J]. Environmental Economy,2019(7):12-39.
[19]李干杰．深入贯彻落实习近平生态文明思想奋力谱写美丽中国建设新篇章[J]．中国生态文明，2018(6):11-15.LI Ganjie. In-depth implementation of Xi Jinping's ecological civilization thought and struggling to write a new chapter in the construction of beautiful China[J]. China Ecological Civilization,2018(6):11-15.
[20]解振华．中国改革开放40年生态环境保护的历史变革:从“三废”治理走向生态文明建设[J]．中国环境管理，2019,11(4):5-10.XIE Zhenhua. The historical change of ecological environmental protection in China's 40 years of reform and opening up:from the‘three wastes’governance to the ecological civilization construction[J].China Environmental Management,2019,11(4):5-10.
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