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| Opinions of the State Council on Applying the Strictest Water Resources Control System | | 国务院关于实行最严格水资源管理制度的意见 |
(No. 3 [2012] of the State Council) | |
（国发〔2012〕3号） |
All provinces, autonomous regions, and municipalities directly the Central Government, all ministries and commissions of the State Council, and all institutions directly affiliated to the State Council: | |
各省、自治区、直辖市人民政府，国务院各部委、各直属机构： |
Water is an origin of life, an essential factor for production, and a basis for ecology. Existence of a large population with inadequate water and uneven distribution of water in time and space are a fundamental national reality and the water situation in China. At present, China faces a very serious situation of water resources, with increasingly conspicuous problems of water resources shortage, serious water pollution, deterioration of the water ecological environment, and so on, which have become major bottlenecks inhibiting sustainable economic and social development in the country. To well implement the requirements of both the central water resources work conference and the Decision of the CPC Central Committee and the State Council on Accelerating Water Resources Reform and Development (No. 1 [2011] Issued by the CPC Central Committee), the following opinions are hereby offered regarding applying the strictest water resources control system: | |
水是生命之源、生产之要、生态之基，人多水少、水资源时空分布不均是我国的基本国情和水情。当前我国水资源面临的形势十分严峻，水资源短缺、水污染严重、水生态环境恶化等问题日益突出，已成为制约经济社会可持续发展的主要瓶颈。为贯彻落实好中央水利工作会议和《中共中央 国务院关于加快水利改革发展的决定》（中发〔2011〕1号）的要求，现就实行最严格水资源管理制度提出以下意见： |
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| I. General requirements | | 一、总体要求 |
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| 1. Guiding ideology: The Scientific Outlook on Development shall be thoroughly implemented, and control shall be strengthened over both the demand for water use and the process of water use, with priority given to the allocation, conservation and protection of water resources. Through systemic improvement, clarification of responsibility, enhancement of capacity, and strengthening of supervision and control, the total volume of water use shall be brought under strict control, the efficiency of water use shall be comprehensively raised, and the total volume of sewage discharge into rivers and lakes shall be brought under strict control, so as to accelerate the development of a water-saving society, promote sustainable use of waters resources and shift of the mode of economic development, promote coordination between economic and social development and the bearing capacity of the water resources environment, and guarantee long-term, steady and relatively rapid economic and social development. | | （一）指导思想。深入贯彻落实科学发展观，以水资源配置、节约和保护为重点，强化用水需求和用水过程管理，通过健全制度、落实责任、提高能力、强化监管，严格控制用水总量，全面提高用水效率，严格控制入河湖排污总量，加快节水型社会建设，促进水资源可持续利用和经济发展方式转变，推动经济社会发展与水资源水环境承载能力相协调，保障经济社会长期平稳较快发展。 |
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| 2. Basic principles: Putting people first shall be adhered to, with every effort made to solve the most practical problems of the greatest and most direct concern to the people and guarantee drinking water safety, water supply safety and ecological safety. Harmony between man and water shall be adhered to, the natural law and the law of economic and social development shall both be respected, and the relationship between water resources development and protection shall be well handled, with supply of water determined by the volume of water resources, with the use of water kept within the limit of water resources, and with adoption of measures suited to the conditions of local water resources. Unified planning shall be made with due consideration for all concerned, with coordination between water use for daily life, water use for production and water use for ecology, and with coordination of the relationship between the upper and lower reaches, between river banks, between the main stream and tributaries and between surface water and groundwater. Reform and innovation shall be adhered to, the water resources management system and mechanisms shall be enhanced, and management ways and methods shall be more effective. Adjustment of measures to local conditions shall be adhered to, and guidance by category shall be applied, with importance attached to feasibility and effectiveness of application of rules. | | （二）基本原则。坚持以人为本，着力解决人民群众最关心最直接最现实的水资源问题，保障饮水安全、供水安全和生态安全；坚持人水和谐，尊重自然规律和经济社会发展规律，处理好水资源开发与保护关系，以水定需、量水而行、因水制宜；坚持统筹兼顾，协调好生活、生产和生态用水，协调好上下游、左右岸、干支流、地表水和地下水关系；坚持改革创新，完善水资源管理体制和机制，改进管理方式和方法；坚持因地制宜，实行分类指导，注重制度实施的可行性和有效性。 |
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| 3. Major targets | | （三）主要目标。 |
A red line shall be drawn on control over water resources development and utilization, in order that the total volume of water use in China will be limited to within 700 billion cubic meters by the year 2030. A red line shall be drawn on control over the efficiency of water use, in order that the efficiency of water use in China will reach or be close to the advanced world level, that the volume of water use for generating every 10,000 yuan in industrial value added (computed by the constant value in 2000, here and below) will decrease to 40 cubic meters or lower, and that the coefficient of effective use of water in farmland irrigation will rise to 0.6 or higher by the year 2030. A red line shall be drawn on limitation of the pollutant carrying capacity of water function zones, in order that the total volume of major pollutants discharged into rivers and lakes will be limited to within the pollutant carrying capacity of water function zones, and that the up-to-standard rate of the quality of water at water function zones will reach 95 percent or higher by the year 2030. | |
确立水资源开发利用控制红线，到2030年全国用水总量控制在7000亿立方米以内；确立用水效率控制红线，到2030年用水效率达到或接近世界先进水平，万元工业增加值用水量（以2000年不变价计，下同）降低到40立方米以下，农田灌溉水有效利用系数提高到0.6以上；确立水功能区限制纳污红线，到2030年主要污染物入河湖总量控制在水功能区纳污能力范围之内，水功能区水质达标率提高到95%以上。 |
To realize the aforesaid targets, the total volume of water use in China will be limited to within 635 billion cubic meters through every effort, that the volume of water use for generating every 10,000 yuan in industrial value added will decrease by 30 percent or more from the level of 2010, that the coefficient of effective use of water in farmland irrigation will rise to 0.53 or higher, and that the up-to-standard rate of the quality of water at water function zones of major rivers and lakes will reach 60 percent or higher by the year 2015. By the year 2020, the total volume of water use in China will be limited to within 670 billion cubic meters through every effort, that the volume of water use for generating every 10,000 yuan in industrial value added will be limited to 65 cubic meters or lower, that the coefficient of effective use of water in farmland irrigation will rise to 0.55 or higher, that the up-to-standard rate of the quality of water at water function zones of major rivers and lakes will reach 80 percent or higher, and that the quality of water at water head areas for water supply to urban areas will be fully up-to-standard. | |
为实现上述目标，到2015年，全国用水总量力争控制在6350亿立方米以内；万元工业增加值用水量比2010年下降30%以上，农田灌溉水有效利用系数提高到0.53以上；重要江河湖泊水功能区水质达标率提高到60%以上。到2020年，全国用水总量力争控制在6700亿立方米以内；万元工业增加值用水量降低到65立方米以下，农田灌溉水有效利用系数提高到0.55以上；重要江河湖泊水功能区水质达标率提高到80%以上，城镇供水水源地水质全面达标。 |
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| II. Strengthening water resources development and utilization control red line management and strictly applying control over total quality of water use | | 二、加强水资源开发利用控制红线管理，严格实行用水总量控制 |
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| 4. Strict planning for management and water resources demonstration: Development and utilization of water resources shall meet the requirements of the principal function zone, and planning shall be made on a unified basis in accordance with valleys and regions to make full use of the multifunction and comprehensive efficiency of water resources. Construction of water projects must conform to comprehensive planning for valleys and planning for flood control, and competent water administration departments or valley administration organs shall conduct review and issue opinions in accordance with their management powers. The water resources demonstration for the layout of relevant planning and construction of projects shall be strengthened, and the formulation of planning for national economic and social development and general planning for urban development and the layout of major construction projects shall suit the local water resources conditions and requirements of flood control. The system of water resources demonstration for construction projects shall be strictly enforced, and approving authorities shall not approve construction projects for which the work of water resources demonstration has not been completed in accordance with law. Construction employers may not start the construction of such projects or put them into use. Where the relevant legal provisions are violated, discontinuation shall be ordered without exception. | | （四）严格规划管理和水资源论证。开发利用水资源，应当符合主体功能区的要求，按照流域和区域统一制定规划，充分发挥水资源的多种功能和综合效益。建设水工程，必须符合流域综合规划和防洪规划，由有关水行政主管部门或流域管理机构按照管理权限进行审查并签署意见。加强相关规划和项目建设布局水资源论证工作，国民经济和社会发展规划以及城市总体规划的编制、重大建设项目的布局，应当与当地水资源条件和防洪要求相适应。严格执行建设项目水资源论证制度，对未依法完成水资源论证工作的建设项目，审批机关不予批准，建设单位不得擅自开工建设和投产使用，对违反规定的，一律责令停止。 |
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| 5. Strict control over the total volume of water extraction and use in valleys and regions: Formulation of planning for allocation of water in major river valleys shall be accelerated, and a system of indexes for control over the total volume of water extraction and use covering valleys and administrative regions at the provincial, prefecture and county levels shall be established in order to exercise control over the total volume of water extraction and use in valleys and regions. All provinces, autonomous regions, and municipalities directly under the Central Government shall, in accordance with the planning for allocation of water in river valleys or indexes for control over water extraction and use, formulate annual water use planning, and exercise control over the annual total volume of water use in the administrative regions under their jurisdiction in accordance with law. The system of water rights shall be established and improved, water markets shall be developed actively, and launch of trading in water rights shall be encouraged, so as to use market mechanisms to rationally distribute water resources. | | （五）严格控制流域和区域取用水总量。加快制定主要江河流域水量分配方案，建立覆盖流域和省市县三级行政区域的取用水总量控制指标体系，实施流域和区域取用水总量控制。各省、自治区、直辖市要按照江河流域水量分配方案或取用水总量控制指标，制定年度用水计划，依法对本行政区域内的年度用水实行总量管理。建立健全水权制度，积极培育水市场，鼓励开展水权交易，运用市场机制合理配置水资源。 |
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6. Strict enforcement of water extraction license: Administration of official review and approval of water extraction license shall be brought under strict regulation. For regions with the total volume of water extraction and use reaching or exceeding indexes for control, official review and approval of their construction of projects for increasing water extraction shall be suspended. For regions with the total volume of water extraction and use close to indexes for control, official review and approval of their construction of projects for increasing water extraction shall be restricted. For applications for water extraction for construction of projects that do not conform to industrial policies of the state or that have been listed in the category for phasing out in the catalogue of guidance over reform of the industrial structure by the state, for applications for water extraction for construction of projects for manufacturing products that do not conform to quota standards for industrial water use, for applications for groundwater extraction for construction of projects with one's own water extraction facilities even if the urban public water supply pipeline network is capable of satisfying the demand for water use, and for applications for groundwater extraction for construction of projects by regions with extraction of groundwater already in serious excess of permission, the approving authorities shall not approve them.
．．．．．． | | （六）严格实施取水许可。严格规范取水许可审批管理，对取用水总量已达到或超过控制指标的地区，暂停审批建设项目新增取水；对取用水总量接近控制指标的地区，限制审批建设项目新增取水。对不符合国家产业政策或列入国家产业结构调整指导目录中淘汰类的，产品不符合行业用水定额标准的，在城市公共供水管网能够满足用水需要却通过自备取水设施取用地下水的，以及地下水已严重超采的地区取用地下水的建设项目取水申请，审批机关不予批准。
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