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| Notice of the State Council on Issuing the “Eleventh Five-Year Plan” for National Environmental Protection | | 国务院关于印发国家环境保护“十一五”规划的通知 |
(No.37 [2007] of the State Council) | |
(国发〔2007〕37号) |
The people's governments of all provinces, autonomous regions and municipalities directly under the Central Government, all ministries and commissions under the State Council, and all institutions directly under 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： |
The State Council has approved the “Eleventh Five-Year Plan” for National Environmental Protection (hereinafter referred to as Plan) formulated by the State Environmental Protection Administration and National Development and Reform Commission, which is hereby printed and distributed to you, please implement it in light of your actual situation. | |
国务院同意环保总局、发展改革委制定的《国家环境保护“十一五”规划》（以下简称《规划》），现印发给你们，请结合本地区、本部门实际，认真贯彻执行。 |
At present, the conflict between China's social and economic development on the one hand and environment and resources on the other hand is becoming more and more prominent with each passing day. Environmental protection in China is facing with great challenges. All regions and departments shall deeply carry out the scientific view of development, transform the mode of economic development and make more efforts to solve those serious environmental problems which endanger people's health and affect sustainable social and economic development so as to build an environment-friendly society. We shall focus on realizing the objectives on the total discharge control of major pollutants as determined in the Plan, give top priority to pollution prevention and control, accelerate the restructuring process and make more efforts in pollution control so as to ensure that, by 2010, both sulfur dioxide and chemical oxygen demand decrease by 10% against 2005. At the same time, we shall speed up the pollution control in such major watersheds as Huai River, Hai Rive, Liao River, Tai Lake, Chao Lake, Tianchi and Songhuajiang and make more efforts in the disposal of urban sewage and refuse so as to ensure the safety of drinking water sources. | |
当前，我国经济社会发展与资源环境约束的矛盾日益突出，环境保护面临严峻的挑战。各地区、各部门必须深入贯彻科学发展观，转变经济发展方式，下大力气解决危害人民群众健康和影响经济社会可持续发展的突出环境问题，努力建设环境友好型社会。要紧紧围绕实现《规划》确定的主要污染物排放总量控制目标，把防治污染作为重中之重，加快结构调整，加大污染治理力度，确保到2010年二氧化硫、化学需氧量比2005年削减10%。同时，要加快淮河、海河、辽河、太湖、巢湖、滇池、松花江等重点流域污染治理，加快城市污水和垃圾处理，保障群众饮用水水源安全。 |
The people's governments at all levels shall bring environmental protection targets, tasks, measures and key engineering projects into your respective local economic and social development planning, and make sure that responsibility, measures, investment and supervision are all in position. The relevant departments under the State Council shall, according to your respective duties and functions, make more efforts in guiding and supporting the implementation of the Plan. We shall strictly enforce the law and exercise strict supervision over it, urge enterprises to perform their environmental protection duties, and mobilize all social forces to make joint efforts to environmental protection; attach high importance to investment quality and benefits, and ensure the seriousness and reasonability of the implementation of the Plan; and establish an evaluation and assessment mechanism, and publish the discharge of major pollutants in each region, the progress of key engineering projects and the environmental quality changes in key watersheds and key cities once every half year. By the end of 2008 and 2010, respectively, a mid-term evaluation and an end-term assessment will be carried out on the implementation of the Plan, and the evaluation and assessment results will be taken as an important basis for evaluating the political achievements of the local people's governments at all levels. | |
地方各级人民政府要把环境保护目标、任务、措施和重点工程项目纳入本地区经济和社会发展规划，做到责任到位、措施到位、投资到位、监管到位。国务院有关部门要根据各自的职能分工，切实加强对《规划》实施的指导和支持。要严格执法监督，督促企业履行保护环境的责任，动员全社会共同保护环境。要高度重视投资质量和效益，保证《规划》执行的严肃性和合理性。要建立评估考核机制，每半年公布一次各地区主要污染物排放情况、重点工程项目进展情况、重点流域与重点城市的环境质量变化情况。在2008年底和2010年底，分别对《规划》执行情况进行中期评估和终期考核，评估和考核结果要作为考核地方各级人民政府政绩的重要内容。 |
State Council | |
国务院 |
November 22nd, 2007 | |
二○○七年十一月二十二日 |
“Eleventh Five-Year Plan” for National Environmental Protection | |
国家环境保护“十一五”规划 |
This Plan is formulated in accordance with the Outline of the Eleventh Five-Year Plan for National Economic and Social Development and the Decision of the State Council on Implementing the Scientific View of Development to Strengthen Environmental Protection (No.39 [2005] of the State Council). This Plan is an important component of the National Eleventh Five-Year Plan system. It aims at elaborating the targets, tasks, investment priority as well as policies and measures to be taken in the field of environmental protection during the Eleventh Five-Year Plan Period, clarifying the responsibilities and tasks of the people's governments and environmental protection departments at all levels and guiding and mobilizing the participation of enterprises and other social forces so as to build an environment-friendly society. | |
根据《国民经济和社会发展“十一五”规划纲要》和《国务院关于落实科学发展观加强环境保护的决定》（国发〔2005〕39号）编制本规划。本规划是国家“十一五”规划体系的重要组成部分，旨在阐明“十一五”期间国家在环境保护领域的目标、任务、投资重点和政策措施，重点明确各级人民政府及环境保护部门的责任和任务，同时引导企业、动员社会共同参与，努力建设环境友好型社会。 |
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| I. Environmental Situation | | 一、环境形势 |
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| (I). Progress made during the 10th Five-Year Plan Period. | | （一）“十五”期间环境保护工作取得进展。 |
The central leadership of the Party and the State Council attach great importance to environmental protection, deem the improvement of environmental quality as an important part of implementing the scientific view of development and building a socialist harmonious society, take environmental protection as an important means for macro-economic control, and have taken serials of important policies and measures. With the unremitting efforts of all regions and departments, some high-consumption and high-pollution facilities with backward productive capacity have been washed out, pollution control and the environmental infrastructure construction in urban areas have been accelerated, progress has been achieved in important regions, watersheds and cities, and more efforts have been made in ecological protection and pollution control. A serial of countermeasures have been adopted to meet climatic changes, market-oriented philosophy starts to be applied to environmental protection, investment in environment protection doubles that during the 9th Five-Year Plan Period, and the money invested in environmental protection accounts for more than 1% of GDP for the first time. Our capacity in environment management has been improved to a certain extent, so does our environment enforcement ability. People's awareness of and participation in environmental protection have been improved to a large extent, and their knowledge about the underlying rules in China's environmental protection has been deepened. Under the rapid development of economy and the sharp growth of heavy chemical industries, the total discharge of some major pollutants has been reduced, the aggravation of environmental pollution and ecological damage has been eased, the environmental quality in some regions and cities has been improved, and nuclear and radiation safety has been guaranteed. | |
党中央、国务院高度重视环境保护，将改善环境质量作为落实科学发展观、构建社会主义和谐社会的重要内容，把环境保护作为宏观经济调控的重要手段，采取了一系列重大政策措施。各地区、各有关部门不断加大环境保护工作力度，淘汰了一批高消耗、高污染的落后生产能力，加快了污染治理和城市环境基础设施建设，重点地区、流域和城市的环境治理不断推进，生态保护和治理得到加强；采取了一系列应对气候变化的对策措施，市场化机制开始进入环境保护领域，全社会环境保护投资比“九五”时期翻了一番，占GDP的比例首次超过1%；环境管理能力有所提高，环境执法力度有所加强；全社会的环境意识和人民群众的参与程度明显提高，对我国环境保护规律性的认识不断深化。在经济快速发展，重化工业迅猛增长的情况下，部分主要污染物排放总量有所减少，环境污染和生态破坏加剧的趋势减缓，部分地区和城市环境质量有所改善，核与辐射安全得到保证。 |
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| (II). Environmental situation is still serious. | | （二）环境形势依然严峻。 |
Despite all the above-mentioned progress, China's environmental situation is still serious. Not all planned figures determined in the 10th Five-Year Plan have been realized, the discharge of sulfur dioxide has increased by 27.8% over 2000, and chemical oxygen demand has only decreased by 2.1% instead of the planned 10%. The planned targets on treating Huai River, Hai River and Liao River, Tai Lake, Chao Lake and Dian Lake (hereinafter referred to as three rivers and three lakes) were only realized at a discount of about 40% off. The discharge of major pollutants went far beyond environmental capacity, environmental pollution is still serious. 26% of surface water sections which are under the state's key monitoring fail to satisfy even the V Standards for water environment, and 62% of them fail to satisfy III Standards. 90% of river reaches passing urban areas are polluted to different extents, and 75% of lakes are suffering from eutrophication. The water quality of 30% of drinking water head sites in important cities fail to reach III Standards. The environmental quality in offshore areas is under threat. The air quality in 46% of cities divided into districts can't meet II Standards, and in some mid and large cities, haze days increase, and the degree of acid rain pollution remain the same. | |
我国环境保护虽然取得积极进展，但环境形势依然严峻。“十五”环境保护计划指标没有全部实现，二氧化硫排放量比2000年增加了27.8%，化学需氧量仅减少2.1%，未完成削减10%的控制目标。淮河、海河、辽河、太湖、巢湖、滇池（以下简称“三河三湖”）等重点流域和区域的治理任务只完成计划目标的60%左右。主要污染物排放量远远超过环境容量，环境污染严重。全国26%的地表水国控（国家重点监控）断面劣于水环境V类标准，62%的断面达不到Ⅲ类标准；流经城市90%的河段受到不同程度污染，75%的湖泊出现富营养化；30%的重点城市饮用水源地水质达不到Ⅲ类标准；近岸海域环境质量不容乐观；46%的设区城市空气质量达不到二级标准，一些大中城市灰霾天数有所增加，酸雨污染程度没有减轻。 |
The area of water erosion is 16.1 million sq.km, the deserted area is 1.74 million sq.km, and more than 90% of natural grassland becomes degenerated; the ecological functions of many rivers have become disordered; biodiversity is becoming less and less, and the economic losses from the intrusion of alien species are increasing; the ecological functions of some important ecological functional zones are degenerating; environmental problems in rural areas are becoming more and more prominent, and soil pollution is becoming more and more serious; and pollution from hazardous wastes, vehicle exhaust gas and persistent organic pollutants is on increase, etc. Our task of coping with climatic changes is arduous. Those environmental problems emerged in different stages of the industrialization of developed countries which lasted for hundreds of years are all emerging in China. China has entered into a stage in which pollution accidents are more than ever and contradiction is more prominent than ever. | |
全国水力侵蚀面积161万平方公里，沙化土地174万平方公里，90%以上的天然草原退化；许多河流的水生态功能严重失调；生物多样性减少，外来物种入侵造成的经济损失严重；一些重要的生态功能区生态功能退化。农村环境问题突出，土壤污染日趋严重。危险废物、汽车尾气、持久性有机污染物等污染持续增加。应对气候变化形势严峻，任务艰巨。发达国家上百年工业化过程中分阶段出现的环境问题，在我国已经集中显现。我国已进入污染事故多发期和矛盾凸显期。 |
During the 10th Five-Year Plan, in environmental protection field, no breakthrough has been made for some deep-level environmental issues, there is no fundamental change in the problems of unreasonable industrial structure and extensive growth mode of economy, environmental protection is still lagging behind economic development, the system is not perfect enough, the mechanism is not flexible enough, the input is not adequate and the capability is not strong enough, there are laws but little observation of them, it is difficult to give punishment for illegal acts, the law enforcement is slack and the supervision is not vigorous enough. | |
“十五”期间力图解决的一些深层次环境问题没有取得突破性进展，产业结构不合理、经济增长方式粗放的状况没有根本转变，环境保护滞后于经济发展的局面没有改变，体制不顺、机制不活、投入不足、能力不强的问题仍然突出，有法不依、违法难究、执法不严、监管不力的现象比较普遍。 |
During the 10th Five-Year Plan Period, China's population increased by 40%, the urbanization process was accelerated, the total economic volume increased by 40% or above, the contradiction between social and economic development and restrictions from resources and environment is becoming more and more prominent, the pressure exerted by the international society on environmental protection will also be increased, China's environmental protection is facing with more and more stringent challenges. | |
“十一五”期间，我国人口在庞大的基数上还将增加4%，城市化进程将加快，经济总量将增长40%以上，经济社会发展与资源环境约束的矛盾越来越突出，国际环境保护压力也将加大，环境保护面临越来越严峻的挑战。 |
Column 1: Accomplishment of Major Indicators of the “Tenth Five-Year Plan” for National Environmental Protection | |
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| No. | Indicator | 2000 | Planned Objective in 2005 | 2005 | Increase Rate | | 1 | Discharge of sulfur dioxide (10,000 tons) | 1995 | 1800 | 2549 | 27.8% | | In particular, discharge in acid rain control zones and sulfur dioxide pollution control zones | 1316 | 1053 | 1354 | 2.9% | | 2 | Discharge of flue gas (10,000 tons) | 1165 | 1100 | 1183 | 1.5% | | 3 | Discharge of industrial dust (10,000 tons) | 1092 | 900 | 911 | -16.6% | | 4 | Discharge of chemical oxygen demand (10,000 tons) | 1445 | 1300 | 1414 | -2.1% | | 5 | Discharge of industrial solid waste (10,000 tons) | 3186 | 2900 | 1655 | -48.1% | | 6 | Repeating utilization factor of water for industrial use (%) | / | 60 | 75 | / | | 7 | Discharge of industrial sulfur dioxide (10,000 tons) | 1613 | 1450 | 2168 | 34.5% | | 8 | Discharge of industrial flue gas (10,000 tons) | 953 | 850 | 949 | -0.5% | | 9 | Discharge of industrial chemical oxygen demand (10,000 tons) | 705 | 650 | 555 | -21.3% | | 10 | Comprehensive utilization ratio of industrial solid waste (%) | 51.8 | 50 | 56.1 | 4.3 percentage points | | 11 | Ratio of cities divided into districts which reach the state secondary standards for air quality (%) | 36.5 | 50 | 54 | 17.5 percentage points | | 12 | Urban sewage processing rate (%) | 34.3 | 45 (domestic sewage) | 52.0 | 17.7 percentage points | | 13 | Percentage of greenery coverage in urban built-up areas (%) | 28.1 | 35 | 33 | 4.9 percentage points | | 14 | Proportion of natural reserve area to the land area of the nation (%) | 9.9 | 13 | 15 | 5.1 percentage points |
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┌──────────────────────────────────────────────┐│ 专栏1“十五”环保计划主要指标完成情况 │├─┬────┬───────────────┬───────────────┬──┬────┤│序│指标名称│ 2000年 │ 2005年计划目标 │2005│“十五”││号│ │ │ │年│增减情况│├─┼────┼───────────────┼───────────────┼──┼────┤│1│二氧化硫│ 1995 │ 1800 │2549│27.8% ││ │排放量（│ │ │ │ ││ │万吨） │ │ │ │ │├─┴────┼───────────────┼───────────────┼──┼────┤│其中：两控区│ 1316 │ 1053 │1354│2.9% ││内排放量 │ │ │ │ │├─┬────┼───────────────┼───────────────┼──┼────┤│2│烟尘排放│ 1165 │ 1100 │1183│1.5% ││ │量（万吨│ │ │ │ ││ │） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│3│工业粉尘│ 1092 │ 900 │911│-16.6% ││ │排放量（│ │ │ │ ││ │万吨） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│4│化学需氧│ 1445 │ 1300 │1414│-2.1% ││ │量排放量│ │ │ │ ││ │（万吨）│ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│5│工业固体│ 3186 │ 2900 │1655│-48.1% ││ │废物排放│ │ │ │ ││ │量（万吨│ │ │ │ ││ │） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│6│工业用水│ / │ 60 │75│/ ││ │重复利用│ │ │ │ ││ │率（%）│ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│7│工业二氧│ 1613 │ 1450 │2168│34.5% ││ │化硫排放│ │ │ │ ││ │量（万吨│ │ │ │ ││ │） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│8│工业烟尘│ 953 │ 850 │949│-0.5% ││ │排放量（│ │ │ │ ││ │万吨） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│9│工业化学│ 705 │ 650 │555│-21.3% ││ │需氧量排│ │ │ │ ││ │放量（万│ │ │ │ ││ │吨） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│10│工业固体│ 51.8 │ 50 │56.1│4.3个百││ │废物综合│ │ │ │分点 ││ │利用率（│ │ │ │ ││ │%） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│11│设区城市│ 36.5 │ 50 │54│17.5个百││ │空气质量│ │ │ │分点 ││ │达到国家│ │ │ │ ││ │二级标准│ │ │ │ ││ │比例（%│ │ │ │ ││ │） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│12│城市污水│ 34.3 │ 45（生活） │52.0│17.7个百││ │处理率（│ │ │ │分点 ││ │%） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│13│城市建成│ 28.1 │ 35 │33│4.9个百││ │区绿化覆│ │ │ │分点 ││ │盖率（%│ │ │ │ ││ │） │ │ │ │ │├─┼────┼───────────────┼───────────────┼──┼────┤│14│自然保护│ 9.9 │ 13 │15│5.1个百││ │区面积占│ │ │ │分点 ││ │国土面积│ │ │ │ ││ │比例（%│ │ │ │ ││ │） │ │ │ │ │└─┴────┴───────────────┴───────────────┴──┴────┘
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(III). Environmental protection has entered into a new stage.
The central leadership of the Party and the State Council have put environmental protection at a more important strategic position. Implementing the scientific view of development and building a socialist harmonious society provide fundamental guarantee for environmental protection. Environmental protection is facing with unprecedented opportunities. The transformation of the mode of economic growth and the acceleration of economic restructuring will provide sound foundation for settling structural and regional environmental pollution as well as ecological damages. The reinforcement of the overall strength of the nation provides more powerful material and technological supports. The deepening of the reform of economic structure and administrative system provides favorable conditions for innovating the working mechanism and system for environmental protection. The general public's awareness of environmental protection has been generally improved, which has provided powerful impetus for environmental protection. In China, the relation between environment and development is undergoing significant changes, environmental protection has become an important task for modernization, environmental capacity has become an important basis for regional layout, environmental management has become an important means for structural readjustment, environment standards have become an important precondition for market access, and environmental cost has become an important element of the price formation mechanism. All these significant changes indicate that the environmental protection work of China is entering into a new stage at which environmental protection is used to optimize economic growth, and that challenges and opportunities coexist and difficulties and hopes coexist.
| | （三）环境保护工作进入新阶段。
党中央、国务院把环境保护摆上了更加重要的战略位置，落实科学发展观、构建社会主义和谐社会为做好环保工作提供了根本保证，环境保护面临前所未有的机遇。经济增长方式转变和经济结构调整步伐加快，将为解决结构性、区域性环境污染和生态破坏起到基础性作用。综合国力增强为环境保护提供了更有力的物质和技术支撑。经济体制和行政管理体制改革深化，为创新环保工作体制和机制提供了有利的条件。广大群众环境意识普遍提高，为环境保护提供了强大的动力。我国环境与发展的关系正在发生重大变化，环境保护成为现代化建设的一项重大任务，环境容量成为区域布局的重要依据，环境管理成为结构调整的重要手段，环境标准成为市场准入的重要条件，环境成本成为价格形成机制的重要因素。这些重大变化，标志着我国环保工作正进入以保护环境优化经济增长的新阶段，挑战与机遇同在，困难与希望并存。
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II. Guiding Ideology, Basic Principles and Planning Objectives
The key of doing well the environmental protection work as specified in the 11th Five-Year Plan lies in accelerating the following historical transformations: firstly, transforming from making heavy of economic growth but making little of environmental protection to making heavy of both economic growth and environmental protection, which means that we shall take environmental protection as an important means for adjusting economic structure and transforming economic growth mode and requires us to seek development in protecting environment. Secondly, transforming from environmental protection's lagging behind economic development to keeping environmental protection and economic development side by side, which requires us to not owe any new debts, repay more old debts and change the situation that pollution first, treatment second and the situation that damages are caused at the same time of treatment. Thirdly, transforming from using administrative measures to protect environment to comprehensively using legal, economic, technical and necessary administrative measures to solve environmental issues, which requires us to follow economic rules and natural rules to improve our environmental protection level.
．．．．．． | | 二、指导思想、基本原则和规划目标
做好“十一五”环境保护工作，关键要加快实现历史性转变：一是从重经济增长轻环境保护转变为保护环境与经济增长并重，把加强环境保护作为调整经济结构、转变经济增长方式的重要手段，在保护环境中求发展。二是从环境保护滞后于经济发展转变为环境保护和经济发展同步，做到不欠新账，多还旧账，改变先污染后治理、边治理边破坏的状况。三是从主要用行政办法保护环境转变为综合运用法律、经济、技术和必要的行政办法解决环境问题，自觉遵循经济规律和自然规律，提高环境保护工作水平。
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