中国环境科学研究院 CRAESGaojian,Wang Shulan, Chai Fahe

Air Pollution Control strategy making and the demonstration in Mega-cities in China

• Background

• Requirement for urban air

quality management

• Regulations for air quality

management

主要内容 Outline

• 背景• 城市空气质量管理需求• 空气质量管理办法的制定

2009 年全国地级以上城市达标状况Characteristics of non-attainment cities in 2009

背景 Background

320 个地级及以上城市320 prefectures and above level

cities

113 个重点城市113 key environmental protection

cities

0

50

100

150

200

250

300

350

254

76

66

37

未达标 Non-attainment

达标 attainment

• 全国有相当数量的城市空气质量未达到国家二级标准；

• 各项污染物污染分担率存在差异；

• 污染物浓度水平不等；• 自然、社会、经济条件不

同

• Many focused cities cannot attain National Grade II standards ;

• Different proportion of pollutants;

• Different concentration level of pollutants

• Different background in nature, society and economic

城市空气污染严重、问题复杂Serious urban air pollution, complex reasons

未达标城市特征分类 Classification for non-attainment cities

处于城市群中的城市：成因复杂、呈现复合作用效应 京津冀 珠三角 长三角

相对孤立的城市：西部城市 西北部城市 西南部城市

季节性特征明显的城市： 风沙期 采暖期

Cities located in urban agglomeration: complex sources result composite effects Beijing-Tianjin-Hebei region Pearl river delta region Yangtze river delta region

Relevant isolated cities: western cities Northwest cities Southeast cities

Seasonal characteristics cities: Sandy period Heating period

管理工作面临挑战 The management challenges

区域性复合污染日益严重 国务院办公厅转发环境保护部等部门关于推进大气污染联防联控工作改善区域空气质量指导意见：到

2015 年，重点区域内所有城市空气质量达到或好于国家二级标准 城市是空气质量管理的最基本单元 管理创新——科学管理

The regional compound pollution is getting worse

The state council transmitted the MEP’s notice about push forward regional joint prevention and control of air pollution: all of the key area should attain or above the national air quality level 2 by 2015

City is the basic element of air quality management

Management innovations – scientific management

空气质量管理的要求 The objects of air quality management

实现空气质量改善：减少空气污染对人体健康和生态环境的影响，促进更多的城市达到空气质量二级标准，并在需要特殊保护的区域达到一级标准。 管理者有章可循，指导被管理者有效行动

Improve the air quality: reduce effects of air pollution on human health and ecosystem, promote more cities attain air quality level 2, and attain level 1 in specific areas

Guide the supervisees’ effective actions

城市空气质量管理办法的制定The formulation of urban air quality management

依据： 一法 + 一个指导意见

工作目标： 到 2015 年，全国环保重点城市达标比例由 2009的 67.3% 提高到 80%以上。 全国城市空气质量年均浓度达标比例从 2009 年的

85.6% 提高到 90% 以上。

Basis: one law & one guidance

Objectives:Raise national key

environmental protection cities attainment proportion from 67.3% in 2009 to 80% in 2015.

Raise national urban air quality attainment ratio from 85.6% in 2009 to 90% in 2015.

空气质量管理办法的框架 Framework of UAQMP

总计八章， 49 条 主要内容：

总则 城市环境空气质量指标和评价 城市空气质量分级管理制度与程序 保障机制 支撑体系 改善空气质量的途径 报告、评估和考核 奖惩措施

8 chapters, 49 articles Content:

General provision Index and assessment for urban

air quality Hierarchical urban air quality

management systems and procedures

Security mechanism Support system Approaches to improve air

quality Reporting, evaluation and

assessment Incentives

第一章 总则 Chapter 1 General provision 管理工作目标： Objectives:

2009 年 2015 年环保重点城市达标比例National key environmental protection cities

67.3% 80%

全国城市空气质量年均浓度达标比例National urban air quality attainment ratio

85.6% 90%

责任主体：各级城市人民政府 Subject of liability: City government at all levels 达标方案：达标期限、分阶段目标、措施 & 工程Compliance program: deadline, target phase

分级管理： 国务院主管部门负责审批重点城市的达标方案，省自治区直辖市政府负责审批辖区内城市的达标方案； Hierarchical management: state council approve key cities’ compliance program, provincial and city government approve the relevant cities’ compliance program;

同步改善：加强城市与区域协调配合，实现双赢；Synchronization improve: strength coordinate between city and region, achieve win-win;

评估考核：定期对实施效果考核； Assessment: periodic assessment of the implementation effects

管理创新：鼓励相关管理制度、科学研究与技术的创新，以及公众参与。 Management innovations: encourage innovations among management system, research and technology, public participation.

第二章 城市环境空气质量指标与评价Chapter 2 Index and assessment for urban air quality

指标 Indicator

• 国家环境空气质量标准所规定的污染 Pollutions under National Ambient Air Quality Standards

• 重点地区需将 PM2.5 纳入参考指标 Bring PM2.5 into reference index in key area

达标 Attainment

• 满足国家空气质量二级标准 Meet the level 2 standard

• API小于 100 的天数达到 85% 以上 More than 85% days see API less than 100

评价范围和时段 Scope and time for assessment

• 按年度对城市市区和近郊进行评价 On annual basis to evaluate urban and suburb areas

• 加强对远郊及农村监测点位的评价 To strengthen the evaluation for outer suburbs and rural monitoring sites

重污染评价 Evaluation of heavy pollution

• 对持续 3 日以上的污染情况进行评价 Evaluation more than 3 days of continuous serious pollution situation

逐点评价 Point by point evaluation

• 明确监测点位代表的面积和覆盖的人口 Definite area and population represented by the monitor site

第三章 城市空气质量分级管理制度与程序Chapter 3 Hierarchical urban air quality management systems and procedures

现状是否清楚、问题是否准确； Whether situation is clear, problem is accurate; 达标期限是否合理； Whether the deadline is reasonable; 达标措施是否能够保证方案目标的实现； Whether measures could guarantee targets be achieved; 重点措施、任务与工程是否落实到位； Whether key measures, tasks and projects could be carried out; 年度计划是否合理； Whether the annual plan is reasonable; 保障措施是否得力 ; Whether the security measures is practicable;

审批重点：Key point in approval :

部门和年度：将达标方案的工作重点任务、措施与工程逐条分解落实到相关部门； Decompose targets, measures and projects into relevant

department; 专家委员会：承担达标方案编制的技术指导和技术评估； Expert committee guidance and evaluate the compliance

program; 自查机制：市人民政府应及时检查方案执行情况，并解决出现的问题； Self-examination: Local government should check the

implementation of compliance program in time, and settle the issues;

检查和考核：考核结果将会每年向社会公布； Assessment: the assessment results would be published to the public.

第四章 保障机制Chapter 4 Security mechanism

•行政首长负责制 Chief Executive responsibility system•城市空气质量管理中心 Urban Air Quality Management Center

组织机构保障Protection

organization

•落实环境空气管理工作经费 Carry out funds for air quality management •拓宽污染治理投融资渠道 Widen channels for pollution control investment and financing

资金保障Financial security

•完善相关政策，如排污收费等 Perfect relevant policies, e.g. pollution charge•因地制宜制定经济补贴政策 Formulate economic subsidies

政策保障Policy

support

第五章支撑体系Chapter 5 Supporting system

•建立环境空气质量天地一体化监测网 To establish world integration air quality monitoring network•研究建立国家空气质量模拟、预测与预警法规模型体系 Study on the establishment of national air quality modeling, forecasting and prewarning model system

监测网和模型Monitoring

network and model

•实时数据报告制度 Real-time data reporting system•不定期巡查以确定其准确性 Unscheduled inspections to determine its accuracy

质量控制Quality Control

第六章 改善空气质量的途径Chapter 6 Approaches to improve air quality

• 产业结构和布局优化 Optimization of industrial structure and layout

• 清洁生产 Cleaner production• 淘汰落后工艺 Eliminate backward technology

宏观策略 Marco strategy

• 完成总量控制指标 Complete total pollutant control targets• 结合当地情况开展颗粒物、 VOC 等污染物的防治工作 Carry out

PM and VOC pollution prevention and control in specific cities

重点污染物协同减排 Cooperative reduction for

major pollutants• 优化产业节构和布局 Optimization of industrial structure and

layout• 集中迁入工业园区 Moving into industrial park• 推进清洁能源和集中供热改造 Promote clean energy and

central heating

工业领域污染防治Industrial pollution

control• 优先控制主要污染源 Priority control of major sources of

pollution• 并针对当地特殊污染物制定总量削减计划和减排清单 Development

of the total pollutant reduction plans and inventory for local specific pollutants

污染物总量控制Total pollutant control

• 推广清洁能源和可再生能源 Popularize clean energy and renewable energy

• 大力发展集中供热 Popularize central heating• 探索煤炭消费总量控制 Study on the total coal consumption

control

能源清洁利用 Use clean energy

• 大力发展公共交通 Develop public transport• 完善城市交通基础设施 Perfect urban transport infrastructure• 加强对新车、在用车的监管 Strengthen controls over new car,

in-use car's

机动车污染防治 Motor vehicle pollution control

第七章 报告、评估和考核Chapter 7 Reporting, evaluation and assessment

• 城市环境保护主管部门定期向公众发布城市空气质量现状和改善情况，并对于重污染事件做好预报和制定防治措施。 Local EPB Regularly released urban air quality status and improvement to the public

建立城市空气质量报告体系Establish Urban air

quality reporting system

• 成立国家、省和市级空气质量管理委员会，其中市级空气质量管理委员会负责自评估。 Establish national, provincial and local Air Quality Management Committee, while the local AQMC responsible for self-examination

自评估 Self-examination

• 国家空气质量管理委员会负责对重点城市达标方案实施情况进行考核； National AQMC responsible for the assessment of key cities’ compliance program

• 省级管委会应对辖区内其他城市进行考核。 Provincial AQMC assess the others cities

严格考核制度 Strict examination

system• 考核实行百分制，考核指标包括质量指标 37% 、管理指标

23% 和工程指标 40%（具体方法附后） Implement percentage assessment system, quality index, management index and project index would account for 37%, 23% and 40% respectively.

考核指标Assessment indicators

分类指导：国家标准、宏观策略一般性原则的基础上，对达标和不达标及不同地域城市给予区别对待的差别指导。 Classification guidance: based on national standard and

macro strategy, provide classification guidance according to attainment cities, non-attainment cities and different region.

分级管理：重点城市和一般城市。 Hierarchical management ： Key cities and normal cities. 管理思路应注重污染物减排与空气质量改善并重。 Undertake both emission reduction and air quality

improvement as significant index.

城市空气质量管理创新和突破Innovation and breakthrough in urban air quality management

空气质量管理实现：“源 - 政策 - 行动 - 评估 - 调整”的全过程管理 ; Air quality management achieve whole process management: source-policy-action-assess-adjustment;

达标期限：允许不同的达标期限 ; Deadline: allow different deadline; 考核重点：重过程和行动 ; Examination emphasize on process and actions; 评价：考虑监测点位代表的面积和暴露人口数量。 Assessment consider the area and population

represented by the monitor site; 落实责任：多部门协同、协调 ; Decompose responsibility: coordination among different

departments; 发挥公众参与的作用：信息公开。 Public participation: Information disclosure

Thanks for your attentionThanks for the guidance of MEP, thanks for the

support of CRAES