以水环境质量改善为核心建立监督指导农业面源污染治理制度框架

Taking the improvement of water environment quality as the core,establishing an institutional framework for supervising and guiding agricultural non-point source pollution control

本研究通过文献梳理及资料调研对我国农业面源污染监管的现状进行了分析,结果表明:(1)在监管目标指标方面,受多种因素影响,农药化肥施用总量减小、粪肥资源化利用率提高并不一定代表农业面源水污染负荷量的降低。(2)在监管的主要环节方面,可从节水控污和控肥两个关键点切入,并关注土壤流失带走的氮磷情况,重视水土保持工作。(3)在监管主体责任认定方面,农业面源水污染具有累积性和滞后性,已有研究成果检测出的滞后期从1～100年不等,这增大了辨识区域责任主体、厘清责任边界的难度。因此制定管理目标、评估考核办法时要慎重,水质变化也要区分历史责任。(4)在监测体系建设方面,现有针对点源管理和行政区断面考核为主的水质监测体系和监测规范,无法满足农业面源管理追溯区域责任主体、厘清责任的需要。(5)在管理方式方面,根据水污染物类型和空间传输规律,以流域为单元,识别关键源区,突出重点,针对源头和迁移过程关键影响因子,分区分类采取全过程系统配置治理措施,统筹实施生态治理与污染防治是农业面源污染治理成本效益最优的路径选择。针对以上问题,提出以下几点建议:(1)要充分认识农业面源水污染治理的长期性。(2)应引入流域生态系统治理理念,综合分析水(降水、径流、壤中流等)、土壤、地形、植被、受纳水体的生态功能等多种要素对水质的相互影响,统筹生态治理与污染防治,统筹点源与面源治理。(3)建立农业农村、水利、自然资源等多部门在空间规划、信息共享、政策协同、监测网络建设、治理技术标准与法规制定、资金分配等方面的联动机制。当前要按照流域汇水特点优化监测站点布局,修改已有监测技术规范,建立多部门协同的全过程农业面源污染监测体系。(4)各级生态环境部门作为监督者,主要负责识别农业面源污染治理重点流域、确定责任区域和厘清部门责任、开展有关规划协调与政策环境友好性评估、措施效果与规划执行考核评估等。(5)依托第二次污染源普查成果,识别农业面源污染监管的重点区域,选择试点示范区,针对源头和迁移过程关键影响因子,分区分类提出管控目标、评估考核标准、区域责任主体"溯源追踪"技术方法,为在全国开展农业面源污染监督指导工作提供经验参考。

In this paper,we have made literature review and investigation on the present situation and have found out some problems of agricultural non-point source pollution regulation in our country.In view of those problems,the following suggestions are put forward:(1)to fully understand the long-term nature of agricultural non-point source water pollution control;(2)the concept of watershed ecosystem management should be introduced to comprehensively analyze the mutual influence of water(precipitation,runoff,soil flow,etc.),soil,topography,vegetation,ecological function of the receiving water body and other factors on water quality,so as to comprehensively plan ecological treatment and pollution prevention and control,as well as point source and non-point source treatment;(3)establish the linkage mechanism of agricultural,rural,water conservancy,natural resources and other departments in the aspects of space planning,information sharing,policy coordination,monitoring network construction,governance technical standards and regulations formulation,and capital allocation.At present,the layout of monitoring stations should be optimized according to the characteristics of catchment,existing monitoring technical specifications should be modified,and a multi-sector-coordinated whole-process monitoring system for agricultural non-point source pollution should be established;(4)ecological and environmental departments at all levels,as supervisors,are mainly responsible for identifying key river basins for the control of agricultural non-point source pollution,determining responsible areas and clarifying the responsibilities of departments,carrying out relevant planning coordination and environmental friendly assessment of policies,and assessing the effect of measures and planning implementation;(5)based on the second pollution census results,identify the key area of agricultural non-point source pollution regulation,select pilot demonstration area,in view of the source and migration process key impact factors,partition classification is put forward to control target,assessment standard,regional“traceability tracking”technology method,the main responsibility for the national reference experience to carry out the supervision and guidance of agricultural non-point source pollution.