生态环境准入制度衔接成效、问题和优化建议

The Achievements,Problems and Suggestions about the Interactions of Ecological Environment Access System

《中华人民共和国环境影响评价法》实施二十年以来,生态环境分区管控、规划环评、项目环评等制度共同筑牢了生态环境准入的防线,但也出现了管理边界不清晰、管理成效体现不足、制度联动机制保障不健全等问题,本文通过剖析典型规划中生态环境分区管控、规划环评、项目环评三项制度各自发挥的作用,调研部分地区管理实践,提出优化生态环境准入制度的对策建议:一是生态环境分区管控应发挥宏观引领和维护国家生态环境稳定的作用,与国民经济社会发展规划、生态环境保护规划等指导性规划同步研究、同期发布;二是规划环评应进一步筑牢“承上启下”的核心作用,上收部分规划环评的审查权限,提升规划环评文件质量,强化环评要求落实情况监督;三是项目环评应在生态环境准入制度体系中进一步优化简化,对环境影响可控、环保措施成熟的建设项目,可推动项目环评和排污许可两证合一,进一步强化建设主体的责任意识,通过制度整合发挥管理效能。

In the 20 years since the promulgation of the Environmental Impact Assessment Law,the Ecological Environment Zoning Control(EEZC),planning environmental impact assessment(plEIA),project environmental impact assessment(prEIA)and other systems have jointly established a solid defense line for ecological environment access.However,there are also problems such as unclear management boundaries,insufficient management effectiveness,and inadequate institutional interaction mechanism.Through analyzing the roles EEZC,plEIA,prEIA have played in typical plans and evaluating the management practices in some regions,suggestions for optimizing the ecological environment access system(EEAS)were put forward.First,EEZC should play a role in macro role in guiding and maintaining the stability of the national ecological environment,and be studied and released simultaneously with other guiding plans such as National Economic and Social Development Plan and Ecological and Environmental Protection Plan.Second,plEIA should further strengthen its core value of“connecting the preceding and the following”,accept the review authority of some plEIA,improve the quality of the planned environmental assessment documents,and strengthen the supervision of the implementation of the environmental assessment requirements.Modifying management authorities of plEIA can form a cascading guidance for prEIA,therefore provides a technical basis for prEIA reform.Third,prEIA should be further optimized and simplified within EEZC.It is suggested to promote the integration of prEIA and the Pollution Discharge Permit for projects with controlled environmental impacts and mature environmental protection measures,as well as further strengthen the sense of responsibility of the construction body so as to improve management efficiency by system integration.