基于环境介质的生态底线指标体系构建及考核评价

Establishment and assessment of the ecological bottom-line index system based on environmental media

建立反映维护基本生态系统服务和生态安全的考核指标体系,量化生态环境保护绩效评估,形成环境污染控制和环境质量改善的倒逼机制,对于促进环保目标从单一目标向双目标的实现具有重要的战略意义。文章从解析生态底线的内涵和表征着手,基于环境介质,选取大气、水体、植被、土壤、能源5个方面共17项指标,构成生态底线指标体系的基本框架。提出评估模型和方法,通过测量值与底线值的比较,反映环境保护和生态建设的实际绩效,考虑到各行政区各功能区的生态特点及环境初始状态的差异,引入历史数据进行修正,对单个指标及综合绩效分为优良、改善、恶化、极差四个基本等级进行考核鉴定。不同于以往许多以污染物排放控制作为指标体系的思路和地方实践,所建立的生态底线指标体系更关注生态环境的本底条件,指标测度从常规的过程和终端标准转向自然生态环境的质量状况,有效化解污染排放都达标,但环境质量日益恶化的难题。建议各地结合当地特点明确本地区的生态底线,加强各参与部门的交流协调以提供全面而一致的统计与监测信息,加强信息发布平台的建设等基础工作;处理好底线考核机制与原有年度考核机制的关系,生态底线考核结果与相应的奖惩制度和晋升制度等挂钩,将其作为领导干部选拔任用及"五好"班子评选的重要依据;加强配套制度的建设;建立公众参与的相关机制。

It has important practical and strategic significance to establish an assessment index system that reflects the maintenance of basic ecosystem services and ecological security, evaluates quantitatively the performance of eco-environmental protection, as well as forms forced mechanism of environmental pollution control and environmental quality improvement for the transformation of environmental protection objective from single objective （emission reduction and total quantity control ） to double objectives （environmental quality improvement and total pollutants control）. Starting from the analysis of the connotation and characterization of ecological baseline, the paper selects 17 indicators based on five aspects of environmental media including atmosphere, water bodies, vegetation, soil, and energy, and establishes the basic framework of ecological baseline index system. Corresponding assessment model and method are also proposed. The actual performance of environmental protection and ecological construction could be reflected through the comparison of measured values and baseline values. Considering the differences in ecological features and original environmental state of each administrative or functional area, the paper introduces historical data for modification. Single index and comprehensive performance are divided into four basic levels as excellent, improved, deteriorated, and poor for assessment. Different from previous indicator system that focuses on pollutant control, ecological baseline indicator system pays more attention to eco- environment in a local context. The measurement of indicators changes from the conventional process and terminal standards to the quality of natural eco-nvironment, which effectively resolves the problem of ＇all pollutant emissions reach the standard while environmental quality continues to deteriorate＇. Some suggestions of application are proposed, including defining local ecological baseline on the basis of local features; strengthening the communication and coordination among involved departments/sectors to guarantee full and consistent statistics and monitoring information as well as strengthening the construction of information released platform and other elementary work; well handling the relationship between the ecological baseline assessment mechanism and existed annual assessment mechanism by linking the results of the ecological baseline assessment and corresponding reward system and promotion system （ e. g. making the results important basis for the selection and appointment of leading cadres as well as elite teams. ） ; strengthening the construction of supporting systems; and setting up relevant mechanisms for public participation.