生态文明体制改革总体方案

Integrated Reform Plan for Promoting Ecological Progress

中共中央、国务院

The Communist Party of China (CPC) Central Committee and the State Council

为加快建立系统完整的生态文明制度体系，加快推进生态文明建设，增强生态文明体制改革的系统性、整体性、协同性，制定本方案。

This plan has been formulated for putting systematic and complete systems for improving the ecosystem in place more quickly; achieving faster ecological progress; and making the reform for promoting ecological progress more systemic, more holistic, and better coordinated.

一、生态文明体制改革的总体要求

I. A General Description

（一）生态文明体制改革的指导思想。全面贯彻党的十八大和十八届二中、三中、四中全会精神，以邓小平理论、“三个代表”重要思想、科学发展观为指导，深入贯彻落实习近平总书记系列重要讲话精神，按照党中央、国务院决策部署，坚持节约资源和保护环境基本国策，坚持节约优先、保护优先、自然恢复为主方针，立足我国社会主义初级阶段的基本国情和新的阶段性特征，以建设美丽中国为目标，以正确处理人与自然关系为核心，以解决生态环境领域突出问题为导向，保障国家生态安全，改善环境质量，提高资源利用效率，推动形成人与自然和谐发展的现代化建设新格局。

1. The thinking behind the reform

It is crucial to fully implement the guiding principles from the 18th National Congress of the Communist Party of China (CPC) and the second, third, and fourth plenary sessions of the 18th CPC Central Committee; follow the guidance of Deng Xiaoping Theory, the Theory of the Three Represents, and the Scientific Outlook on Development; thoroughly put into practice the guiding principles from the major speeches of General Secretary Xi Jinping; act in accordance with the decisions and plans of the CPC Central Committee and the State Council; adhere to the fundamental state policy of conserving resources and protecting the environment; and give high priority to resource conservation, environmental protection, and the restoration of nature. Based on the fundamental context of China being in the primary stage of socialism and in the particular characteristics new to China in the present phase, and in order to build a beautiful China, handle correctly the relationship between humankind and nature, and solve serious ecological and environmental problems, it is essential to safeguard China’s ecological security, improve the environment, ensure that resources are used more efficiently, and step up efforts to promote the formation of a new pattern of modernization in which humankind develops in harmony with nature.

（二）生态文明体制改革的理念

2. The ideas

树立尊重自然、顺应自然、保护自然的理念，生态文明建设不仅影响经济持续健康发展，也关系政治和社会建设，必须放在突出地位，融入经济建设、政治建设、文化建设、社会建设各方面和全过程。

Respect, protect, and stay in tune with nature. Ecological conservation is vital not only to sustained, healthy economic development, but also to political and social progress, and must therefore be given a position of prominence and incorporated into every aspect and the whole process of economic, political, cultural, and social development.

树立发展和保护相统一的理念，坚持发展是硬道理的战略思想，发展必须是绿色发展、循环发展、低碳发展，平衡好发展和保护的关系，按照主体功能定位控制开发强度，调整空间结构，给子孙后代留下天蓝、地绿、水净的美好家园，实现发展与保护的内在统一、相互促进。

Integrate development and conservation. It is necessary to remain committed to the strategy of treating development as being of the utmost importance to China. Development is good only when it is green, circular, and low-carbon. There should be the right balance between development and conservation. The intensity of development should be brought under control on the basis of functional zoning and spatial planning should be adjusted to ensure that development and conservation are coordinated and reinforce each other so we leave behind a comfortable place that future generations can call home with blue skies, green lands, and clear waters.

树立绿水青山就是金山银山的理念，清新空气、清洁水源、美丽山川、肥沃土地、生物多样性是人类生存必需的生态环境，坚持发展是第一要务，必须保护森林、草原、河流、湖泊、湿地、海洋等自然生态。

Foster an understanding that lucid waters and lush mountains are invaluable assets. Fresh air, clean water sources, beautiful rivers and mountains, fertile land, and biological diversity form an ecological environment that is essential to human survival. As development is a top priority for China, it is imperative to protect forests, grasslands, rivers, lakes, wetlands, seas, and other natural ecosystems.

树立自然价值和自然资本的理念，自然生态是有价值的，保护自然就是增值自然价值和自然资本的过程，就是保护和发展生产力，就应得到合理回报和经济补偿。

Cultivate respect for the value of nature and natural capital. Natural ecosystems have value; the protection of nature is a process of increasing the value of nature and the value of natural capital, and means the protection and development of the productive forces. Protection efforts should, then, be adequately rewarded and come with economic returns.

树立空间均衡的理念，把握人口、经济、资源环境的平衡点推动发展，人口规模、产业结构、增长速度不能超出当地水土资源承载能力和环境容量。

Seek equilibriums in China’s territorial space. To move forward with development, it is necessary to find the right balance between population, economy, resources, and the environment and ensure that the population, the industrial structure, and the economic growth of a region do not surpass its environmental capacity and the carrying capacity of its water and land resources.

树立山水林田湖是一个生命共同体的理念，按照生态系统的整体性、系统性及其内在规律，统筹考虑自然生态各要素、山上山下、地上地下、陆地海洋以及流域上下游，进行整体保护、系统修复、综合治理，增强生态系统循环能力，维护生态平衡。

See that mountains, waters, forests, and farmlands are a community of life. Based on the integrity and systemic nature of ecosystems and the way they work, it is necessary to take into consideration all the elements of the natural ecosystem – both hills and their surrounding areas, both above and under the ground, both land and sea, both upper and lower river basins -and work to protect them in their entirety, restore them systematically, and take a comprehensive approach to their governance in order to preserve ecological balance by strengthening the ability of ecosystems to circulate.

（三）生态文明体制改革的原则

3. The principles

坚持正确改革方向，健全市场机制，更好发挥政府的主导和监管作用，发挥企业的积极性和自我约束作用，发挥社会组织和公众的参与和监督作用。

Ensuring that the reform moves in the right direction. China’s market mechanisms need to be improved, and the government should make better use of its leadership and regulatory roles. Those in the business sector should bring their own initiative into play and exercise self-restraint. Social organizations and the general public should participate and play a supervising role in ecological conservation.

坚持自然资源资产的公有性质，创新产权制度，落实所有权，区分自然资源资产所有者权利和管理者权力，合理划分中央地方事权和监管职责，保障全体人民分享全民所有自然资源资产收益。

Maintaining the public nature of natural resource assets. New property rights systems should be created for natural resources. Ownership rights should be clarified. There should be a distinction between ownership rights and the authority to manage. Powers and regulatory responsibilities of the central and local governments should be divided more appropriately. Everyone should be entitled to benefit from state-owned natural resource assets.

坚持城乡环境治理体系统一，继续加强城市环境保护和工业污染防治，加大生态环境保护工作对农村地区的覆盖，建立健全农村环境治理体制机制，加大对农村污染防治设施建设和资金投入力度。

Integrating environmental governance for rural and urban areas. Continued efforts should be made to strengthen urban environmental protection and industrial pollution prevention and control. The rural coverage of ecological and environmental protection efforts should be expanded. Effective systems and mechanisms for rural environmental governance should be established. The development of pollution prevention and control facilities should be stepped up in rural areas, and related funding should be increased.

坚持激励和约束并举，既要形成支持绿色发展、循环发展、低碳发展的利益导向机制，又要坚持源头严防、过程严管、损害严惩、责任追究，形成对各类市场主体的有效约束，逐步实现市场化、法治化、制度化。

Attaching equal importance to incentives and restraints. It is imperative to develop interest-related mechanisms for promoting green, circular, and low-carbon development, and at the same time practice strict prevention at the source of pollution, strict regulation over operations, strict compensation for environmental damage, and accountability for those responsible in order to effectively restrain all types of market entities and, step by step, make ecological conservation efforts more market-, law-, and procedure-based.

坚持主动作为和国际合作相结合，加强生态环境保护是我们的自觉行为，同时要深化国际交流和务实合作，充分借鉴国际上的先进技术和体制机制建设有益经验，积极参与全球环境治理，承担并履行好同发展中大国相适应的国际责任。

Combining China’s own independent efforts with international cooperation. Strengthening ecological conservation and environmental protection is something China is doing of its own accord, though at the same time it needs to deepen exchange and practical cooperation with other countries, borrow from their advanced technology and their valuable experience in institution building, take an active part in global environmental governance, and assume and perform its international responsibilities as a large developing country.

坚持鼓励试点先行和整体协调推进相结合，在党中央、国务院统一部署下，先易后难、分步推进，成熟一项推出一项。支持各地区根据本方案确定的基本方向，因地制宜，大胆探索、大胆试验。

Integrating piloting first with overall coordination. It is necessary, in accordance with the unified plans of the CPC Central Committee and the State Council, to deal with the easier parts first, move forward step by step, and launch each reform when conditions are ripe to do so. On the basis of the fundamental direction laid out in this plan, encouragement should be given to local governments to explore and experiment boldly in light of their own local conditions.

（四）生态文明体制改革的目标。到2020年，构建起由自然资源资产产权制度、国土空间开发保护制度、空间规划体系、资源总量管理和全面节约制度、资源有偿使用和生态补偿制度、环境治理体系、环境治理和生态保护市场体系、生态文明绩效评价考核和责任追究制度等八项制度构成的产权清晰、多元参与、激励约束并重、系统完整的生态文明制度体系，推进生态文明领域国家治理体系和治理能力现代化，努力走向社会主义生态文明新时代。

4. The objectives

This reform is designed to establish a systematic and complete institutional framework composed of eight systems for promoting ecological progress with clearly defined property rights, diversified participation, and equal focus on incentives and restraints by 2020. It is also designed to modernize China’s governance system and capacity for governance in the field of ecological progress and usher in a new era for socialist ecological progress. These eight systems include a system of property rights for natural resource assets, a system for the development and protection of territorial space, a spatial planning system, a system for regulating total consumption and comprehensive conservation of resources, a system for payment-based resource consumption and compensating conservation and protection efforts, the environmental governance system, the market system for environmental governance and ecological preservation, and the system for evaluating officials’ ecological conservation performance and for holding those responsible for ecological damage to account.

构建归属清晰、权责明确、监管有效的自然资源资产产权制度，着力解决自然资源所有者不到位、所有权边界模糊等问题。

A system of property rights for natural resource assets will be established, according to which ownership is clearly defined, powers and responsibilities are explicit, and regulation is effective, in order to ensure there are owners for natural resources and ownership is clear.

构建以空间规划为基础、以用途管制为主要手段的国土空间开发保护制度，着力解决因无序开发、过度开发、分散开发导致的优质耕地和生态空间占用过多、生态破坏、环境污染等问题。

A system will be built on the basis of spatial planning for the development and protection of territorial space, drawing on regulation of its uses as the main approach, with a view to stopping the over-use of quality cropland and ecological space, ecological damage, and environmental pollution caused by disorderly, excessive, and scattered development.

构建以空间治理和空间结构优化为主要内容，全国统一、相互衔接、分级管理的空间规划体系，着力解决空间性规划重叠冲突、部门职责交叉重复、地方规划朝令夕改等问题。

A spatial planning system will be designed, with the main purpose of strengthening the spatial governance and improving its structure, which is nationally unified and better connected between different departments of government, and according to which management is divided between governments at multiple levels, in an effort to eliminate overlapping and conflicting spatial plans, the overlap and duplication of responsibilities between departments, and the issue of local authorities frequently changing their plans.

构建覆盖全面、科学规范、管理严格的资源总量管理和全面节约制度，着力解决资源使用浪费严重、利用效率不高等问题。

An effective, standardized, and strictly managed system that achieves complete coverage will be established for regulating total consumption and comprehensive conservation of resources, in order to address inefficiency and serious waste in resource consumption.

构建反映市场供求和资源稀缺程度、体现自然价值和代际补偿的资源有偿使用和生态补偿制度，着力解决自然资源及其产品价格偏低、生产开发成本低于社会成本、保护生态得不到合理回报等问题。

A system for payment-based resource consumption and compensating conservation and protection efforts will be established. The system will reflect market supply and demand, resource scarcity, the value of nature, and the need for intergenerational compensation, in order to address the problems of excessively low prices for natural resources and their products, the cost of production and development being lower than the social cost, and inadequate incentives for ecological conservation efforts.

构建以改善环境质量为导向，监管统一、执法严明、多方参与的环境治理体系，着力解决污染防治能力弱、监管职能交叉、权责不一致、违法成本过低等问题。

An environmental governance system which is oriented toward improving the environment, and which incorporates unified regulation, strict law enforcement, and multi-party participation will be developed in an effort to deal with weak capacity for pollution prevention and control, overlapping regulatory functions between government departments, powers not being in accord with responsibilities, and the cost of law violations being too low.

构建更多运用经济杠杆进行环境治理和生态保护的市场体系，着力解决市场主体和市场体系发育滞后、社会参与度不高等问题。

A market system which allows economic levers to play a greater role in environmental governance and ecological conservation will be developed, with a view to addressing the slow development of market entities and market systems and low rates of public participation in ecological conservation.

构建充分反映资源消耗、环境损害和生态效益的生态文明绩效评价考核和责任追究制度，着力解决发展绩效评价不全面、责任落实不到位、损害责任追究缺失等问题。

An evaluation and accountability system will be developed to assess the performance of officials in ecological conservation and hold to account those responsible for ecological damage. This system will be designed to be fully reflective of resource consumption, environmental damage, and ecological benefits, and is to be built so as to correct the shortcomings in performance evaluations, narrow the gaps in responsibility systems, and improve poor accountability for ecological damage.

二、健全自然资源资产产权制度

II. Improving the System of Property Rights for Natural Resource Assets

（五）建立统一的确权登记系统。坚持资源公有、物权法定，清晰界定全部国土空间各类自然资源资产的产权主体。对水流、森林、山岭、草原、荒地、滩涂等所有自然生态空间统一进行确权登记，逐步划清全民所有和集体所有之间的边界，划清全民所有、不同层级政府行使所有权的边界，划清不同集体所有者的边界。推进确权登记法治化。

5. Establishing a unified system for determining and registering ownership

The owners of natural resource assets of all types throughout all Chinese territorial space will be determined in accordance with the principles that all natural resources in China are publicly owned and all property rights are legally prescribed. Ownership of all natural ecological spaces including water flows, forests, mountains, grasslands, uncultivated land, and tidal flats will, according to a unified system, be determined and registered. Clear lines will be gradually delineated to distinguish between assets owned by the whole people and assets collectively owned, ownership by the whole people and ownership operated by different levels of government, and between different collective owners. The rule of law will be strengthened in the determination and registration of ownership.

（六）建立权责明确的自然资源产权体系。制定权利清单，明确各类自然资源产权主体权利。处理好所有权与使用权的关系，创新自然资源全民所有权和集体所有权的实现形式，除生态功能重要的外，可推动所有权和使用权相分离，明确占有、使用、收益、处分等权利归属关系和权责，适度扩大使用权的出让、转让、出租、抵押、担保、入股等权能。明确国有农场、林场和牧场土地所有者与使用者权能。全面建立覆盖各类全民所有自然资源资产的有偿出让制度，严禁无偿或低价出让。统筹规划，加强自然资源资产交易平台建设。

6. Establishing a system of property rights for natural resources within which rights and responsibilities are explicit

A list of rights will be developed to specify the rights of ownership for all types of natural resource assets. The relationship between ownership rights and use rights will be properly dealt with. New forms of collective ownership and ownership by the whole people will be created. With the exception of natural resources which are ecologically important, the ownership rights and use rights for all other natural resources can be separated. It will be made clear who has the right to possess, use, benefit from, or dispose of natural resources, and corresponding rights and responsibilities will be clarified. The right to sell, transfer, and rent out use rights, as well as the right to use them as collateral, as the basis of a loan guaranty, or to gain an equity stake, will all be suitably expanded. The roles of owners and users of land on which state-owned farms, forests, and pastures are located will be clearly defined. A complete system for sale will be established covering all types of natural resource assets owned by the whole people, while the uncompensated transfer of rights or their sale at excessively low a price are to be strictly forbidden. We will draw up an integrated plan for strengthening efforts to develop a natural resource asset exchange.

（七）健全国家自然资源资产管理体制。按照所有者和监管者分开和一件事情由一个部门负责的原则，整合分散的全民所有自然资源资产所有者职责，组建对全民所有的矿藏、水流、森林、山岭、草原、荒地、海域、滩涂等各类自然资源统一行使所有权的机构，负责全民所有自然资源的出让等。

7. Improving the state system of management for natural resource assets

In accordance with the principles of separating owners from regulators and assigning the responsibility for one matter to one single department, the currently diffuse duties and responsibilities of ownership of natural resource assets owned by the whole people will be integrated, and one body will be established to carry out the unified exercise of ownership rights for all types of natural resources owned by the whole people, such as mineral deposits, water flows, forests, mountains, grasslands, uncultivated land, marine areas, and tidal flats, and take responsibility for the sale of these natural resources.

（八）探索建立分级行使所有权的体制。对全民所有的自然资源资产，按照不同资源种类和在生态、经济、国防等方面的重要程度，研究实行中央和地方政府分级代理行使所有权职责的体制，实现效率和公平相统一。分清全民所有中央政府直接行使所有权、全民所有地方政府行使所有权的资源清单和空间范围。中央政府主要对石油天然气、贵重稀有矿产资源、重点国有林区、大江大河大湖和跨境河流、生态功能重要的湿地草原、海域滩涂、珍稀野生动植物种和部分国家公园等直接行使所有权。

Research will be conducted to explore how a system can be put into practice in which, in accordance with the type of resource and its importance in relation to the ecological environment, the economy, and national defense, the central and local governments act as the agents of the owners of natural resource assets owned by the whole people, in order to achieve both efficiency and equity. Resources and territorial space for which the ownership rights are owned by the whole people and directly exercised by the Central Government will be distinguished from those for which the ownership rights are owned by the whole people and exercised by local governments. The Central Government will primarily exercise directly the ownership rights for petroleum and natural gas, valuable and rare mineral resources, key state-owned forests, major rivers and lakes, trans-boundary rivers, ecologically important wetlands and grasslands, marine areas, tidal flats, rare and endangered species of wild fauna and flora, and some national parks.

（九）开展水流和湿地产权确权试点。探索建立水权制度，开展水域、岸线等水生态空间确权试点，遵循水生态系统性、整体性原则，分清水资源所有权、使用权及使用量。在甘肃、宁夏等地开展湿地产权确权试点。

9. Launching trials for determining property rights for water flows and wetlands

Explorations will be made into establishing a water ownership system. Trials will be carried out in determining ownership of bodies of water, coast lines, and other aquatic ecospace. On the basis of respecting the systematic nature and integrity of water ecosystems, the ownership rights, use rights, and allowable volumes for water resource use will be delineated. Trials will be launched in Gansu, Ningxia, and other areas for determining the ownership of wetlands.

三、建立国土空间开发保护制度

III. Establishing a System for the Development and Protection of Territorial Space

（十）完善主体功能区制度。统筹国家和省级主体功能区规划，健全基于主体功能区的区域政策，根据城市化地区、农产品主产区、重点生态功能区的不同定位，加快调整完善财政、产业、投资、人口流动、建设用地、资源开发、环境保护等政策。

10. Improving the functional zoning system

National- and provincial-level planning of functional zones will be coordinated. Regional policies which are based on the functional zones will be improved. On the basis of the different functions – urban areas, primary production areas for agricultural products, or key ecosystem service areas – adjustments and improvements to policies regarding finance, industry, investment, population flow, land to be used for construction, resource development, and environmental protection will be stepped up.

（十一）健全国土空间用途管制制度。简化自上而下的用地指标控制体系，调整按行政区和用地基数分配指标的做法。将开发强度指标分解到各县级行政区，作为约束性指标，控制建设用地总量。将用途管制扩大到所有自然生态空间，划定并严守生态红线，严禁任意改变用途，防止不合理开发建设活动对生态红线的破坏。完善覆盖全部国土空间的监测系统，动态监测国土空间变化。

11. Improving the regulatory system for the use of territorial space

The top-down land-use indices control system will be simplified and the method of allocating indices based on administrative district and baselines for land use will be adjusted. Development intensity indices will be broken down and assigned to the county-level administrative districts as binding quotas to control the total amount of land used for construction purposes. Land use regulation will be extended to all natural ecological spaces, ecological redlines will be defined and strictly observed, and arbitrary changes to land use will be strictly prohibited. Efforts will be made to protect against ecological redlines being crossed by unreasonable development and construction activities. The monitoring system for all territorial space will be improved and a longitudinal approach will be used to monitor changes within China’s territorial space.

（十二）建立国家公园体制。加强对重要生态系统的保护和永续利用，改革各部门分头设置自然保护区、风景名胜区、文化自然遗产、地质公园、森林公园等的体制，对上述保护地进行功能重组，合理界定国家公园范围。国家公园实行更严格保护，除不损害生态系统的原住民生活生产设施改造和自然观光科研教育旅游外，禁止其他开发建设，保护自然生态和自然文化遗产原真性、完整性。加强对国家公园试点的指导，在试点基础上研究制定建立国家公园体制总体方案。构建保护珍稀野生动植物的长效机制。

12. Establishing a national park system

The protection of important ecosystems will be strengthened to ensure their sustainable use. The system of departments independently setting up their own nature reserves, historical and scenic sites, cultural and natural heritage sites, geological parks, and forest parks will be reformed. These protected areas will be reorganized by function and the scope of national parks will be determined as appropriate. National parks will be under more stringent protection: with the exception of improvements to the facilities used by local people in their everyday lives and work and nature-based research, education, and tourism which do not harm ecosystems, other types of development and construction will be prohibited so as to protect the authenticity and integrity of the natural ecological environment and natural and cultural heritage. Guidance on national park trials will be strengthened, and on the basis of these trials, research will be carried out into designing an overall plan for establishing a national park system. A permanent mechanism will be created for the protection of rare and endangered species of wild plants and animals.

（十三）完善自然资源监管体制。将分散在各部门的有关用途管制职责，逐步统一到一个部门，统一行使所有国土空间的用途管制职责。

13. Improving the system for regulating natural resources

Duties and responsibilities related to regulation of use, which are currently spread among different departments, will be gradually concentrated within a single department. This department will then perform all use-related regulatory duties and responsibilities for all territorial spaces.

四、建立空间规划体系

IV. Establishing a Planning System for Territorial Space

（十四）编制空间规划。整合目前各部门分头编制的各类空间性规划，编制统一的空间规划，实现规划全覆盖。空间规划是国家空间发展的指南、可持续发展的空间蓝图，是各类开发建设活动的基本依据。空间规划分为国家、省、市县（设区的市空间规划范围为市辖区）三级。研究建立统一规范的空间规划编制机制。鼓励开展省级空间规划试点。编制京津冀空间规划。

14. Formulating plans for territorial space

All types of current spatial plans formulated by different departments will be integrated into unified spatial plans, which will be all-encompassing. The new plans will be the guide for the development of the country’s territorial space, and the spatial blueprints for sustainable development; they will be the fundamental basis for all types of development and construction programs. Spatial plans will be divided into national, provincial, and municipal (or county) levels (spatial plans for cities which are divided into districts will be formulated for the district level). Research will be conducted into how to establish unified and standardized mechanisms for formulating spatial plans. An environmental impact assessment system will be set up to be used in spatial planning. Provincial-level spatial planning trials are encouraged. A spatial plan will be developed for the Beijing-Tianjin-Hebei region.

（十五）推进市县“多规合一”。支持市县推进“多规合一”，统一编制市县空间规划，逐步形成一个市县一个规划、一张蓝图。市县空间规划要统一土地分类标准，根据主体功能定位和省级空间规划要求，划定生产空间、生活空间、生态空间，明确城镇建设区、工业区、农村居民点等的开发边界，以及耕地、林地、草原、河流、湖泊、湿地等的保护边界，加强对城市地下空间的统筹规划。加强对市县“多规合一”试点的指导，研究制定市县空间规划编制指引和技术规范，形成可复制、能推广的经验。

15. Integrating municipal-level (county-level) plans

Cities and counties will be supported in combining different types of plans into a single spatial plan, such that gradually, there will be one plan - one blueprint - per city or county. Municipal or county spatial plans should classify land using a unified standard, and, in accordance with the relevant functional zoning and the requirements of the provincial-level spatial plan, should delineate production space, living space, and ecological space, demarcate the development boundaries of urban construction areas, industrial areas, and rural living areas, as well as the boundaries of protected areas of arable land, woodlands, grasslands, rivers, lakes, and wetlands, and strengthen coordinated planning for urban subsurface space. More effective guidance will be given to cities and counties regarding their trials for plan integration. Research will be undertaken into developing guidelines and technical standards for the formulation of municipal-level (county-level) spatial plans, which will then serve as experience that can be applied elsewhere.

（十六）创新市县空间规划编制方法。探索规范化的市县空间规划编制程序，扩大社会参与，增强规划的科学性和透明度。鼓励试点地区进行规划编制部门整合，由一个部门负责市县空间规划的编制，可成立由专业人员和有关方面代表组成的规划评议委员会。规划编制前应当进行资源环境承载能力评价，以评价结果作为规划的基本依据。规划编制过程中应当广泛征求各方面意见，全文公布规划草案，充分听取当地居民意见。规划经评议委员会论证通过后，由当地人民代表大会审议通过，并报上级政府部门备案。规划成果应当包括规划文本和较高精度的规划图，并在网络和其他本地媒体公布。鼓励当地居民对规划执行进行监督，对违反规划的开发建设行为进行举报。当地人民代表大会及其常务委员会定期听取空间规划执行情况报告，对当地政府违反规划行为进行问责。

16. Developing new approaches for formulating municipal-level (county-level) spatial plans

We will explore how best to standardize procedures for formulating municipal-level (county-level) spatial plans, public participation will be expanded, and planning will be made more effective and transparent. Those areas piloting municipal-level (county-level) spatial plans are encouraged to integrate planning departments, making a single department responsible for formulating the spatial plan for that municipality or county; and they may form a planning appraisal committee of experts and representatives of the relevant fields. Prior to the formulation of a plan, a resource and environmental carrying capacity assessment must be carried out, and the results of the assessment should serve as the fundamental basis of planning. During the process of formulation, efforts should be made to solicit opinions of those from relevant sectors; the draft of the plan should be published in full so that the suggestions and comments of local residents can be extensively solicited. After evaluation and approval by the planning appraisal committee, the plan must be deliberated and passed by the local people’s congress, then reported to the relevant government department at the next level up to be placed on record. The finalized plan should include the text of the plan along with precise maps and images, and should be made available to the public through websites and other forms of local news media. Local residents are to be encouraged to oversee the implementation of the plan and report any development and construction activities that violate it. The local people’s congress and its standing committee will hear reports at regular intervals on the implementation of the plan, and will hold the local government accountable for violations of the plan.

五、完善资源总量管理和全面节约制度

V. Improving the Systems for Total Resource Management and Comprehensive Resource Conservation

（十七）完善最严格的耕地保护制度和土地节约集约利用制度。完善基本农田保护制度，划定永久基本农田红线，按照面积不减少、质量不下降、用途不改变的要求，将基本农田落地到户、上图入库，实行严格保护，除法律规定的国家重点建设项目选址确实无法避让外，其他任何建设不得占用。加强耕地质量等级评定与监测，强化耕地质量保护与提升建设。完善耕地占补平衡制度，对新增建设用地占用耕地规模实行总量控制，严格实行耕地占一补一、先补后占、占优补优。实施建设用地总量控制和减量化管理，建立节约集约用地激励和约束机制，调整结构，盘活存量，合理安排土地利用年度计划。

17. Improving the systems for providing the strictest possible protection for farmland and securing the economical and intensive use of land

The system for the protection of basic cropland will be improved and a redline below which the area of China’s permanent basic cropland must not fall will be established. To ensure that the area of basic cropland are not diminished, its quality does not deteriorate, and it is not converted to any other uses, the duty of basic cropland protection will be assigned to farming households and every piece of this cropland will be captured through photo-imaging and entered into the national cropland protection database, and its strict protection will be enforced. With the exception of unavoidable cases as specified by law in which basic cropland has to be used as the site of key national projects, no basic cropland may be used for construction purposes. Efforts will be redoubled to grade and monitor as well as maintain and improve the quality of cultivated land. The system for offsetting the occupation of cultivated land for purposes other than cultivation will be improved. A cap will be set on total cultivated land that can be used for new construction projects. It will be made sure that equivalent land is offset ahead of occupation and that the replacement land is of equal or higher grade than the cultivated land to be occupied. A cap will also be on total land that can be occupied for construction purposes, management will be instituted to reduce the amount of cultivatable land that is used as such, and incentive and constraint mechanisms will be established to encourage more economical and intensive use of land. Reasonable annual plans will be made for the use of land, adjusting the structure of land used for different purposes and making the best use of land that has already been made available.

（十八）完善最严格的水资源管理制度。按照节水优先、空间均衡、系统治理、两手发力的方针，健全用水总量控制制度，保障水安全。加快制定主要江河流域水量分配方案，加强省级统筹，完善省市县三级取用水总量控制指标体系。建立健全节约集约用水机制，促进水资源使用结构调整和优化配置。完善规划和建设项目水资源论证制度。主要运用价格和税收手段，逐步建立农业灌溉用水量控制和定额管理、高耗水工业企业计划用水和定额管理制度。在严重缺水地区建立用水定额准入门槛，严格控制高耗水项目建设。加强水产品产地保护和环境修复，控制水产养殖，构建水生动植物保护机制。完善水功能区监督管理，建立促进非常规水源利用制度。

18. Improving the system for the strictest possible management of water resources

To give priority to saving water, achieve harmony between development and water conservation, carry out systemic governance, and ensure that both government and market play their respective roles, the system for controlling total water usage will be improved to ensure water security. Efforts will be accelerated to formulate water allocation plans for major river basins, strengthen coordination between provincial-level governments, and improve the system of targets for control of total water usage at the provincial, municipal, and county levels. Effective mechanisms will be established to ensure economical and intensive water usage. More work will be done to adjust the way water resources are used and improve their allocation. The system for evaluating the impact of plans and construction projects on water resources will be improved. Efforts will be made to draw principally on pricing and taxation to gradually establish systems for controlling and instituting quota-based management of the volume of water used in irrigation, and for controlling and instituting quota-based management of the planned water usage of high-water-consuming industrial enterprises. In regions seriously affected by water scarcity, water quotas will be used as a threshold for market entry and the development of high-water-consuming projects will be strictly controlled. The protection and environmental restoration of areas producing aquatic products will be strengthened, their aqua culture will be controlled, and mechanisms will be established for the protection of aquatic plant and animal life. Regulation of water functional zones will be improved and systems for promoting the utilization of alternative water resources will be established.

（十九）建立能源消费总量管理和节约制度。坚持节约优先，强化能耗强度控制，健全节能目标责任制和奖励制。进一步完善能源统计制度。健全重点用能单位节能管理制度，探索实行节能自愿承诺机制。完善节能标准体系，及时更新用能产品能效、高耗能行业能耗限额、建筑物能效等标准。合理确定全国能源消费总量目标，并分解落实到省级行政区和重点用能单位。健全节能低碳产品和技术装备推广机制，定期发布技术目录。强化节能评估审查和节能监察。加强对可再生能源发展的扶持，逐步取消对化石能源的普遍性补贴。逐步建立全国碳排放总量控制制度和分解落实机制，建立增加森林、草原、湿地、海洋碳汇的有效机制，加强应对气候变化国际合作。

19. Establishing a system for total energy consumption management and energy conservation

High priority will be given to energy conservation, the control of energy intensity will be strengthened, and the responsibility system and the system of incentives for meeting energy conservation targets will be improved. Improvements will be made to the energy statistics system. The management system for energy conservation by major energy-consuming organizations will be improved, and a mechanism for making voluntary pledges on energy conservation will be implemented on an explorative basis. The system of energy conservation standards will be improved to make timely updates to energy efficiency standards for energy-consuming products, limits on energy consumption for energy-intensive industries, and energy efficiency standards for buildings. A reasonable target will be established for total national energy consumption and broken down and assigned to the provincial-level and major energy-consuming organizations. The mechanism for promoting the use of energy-saving, low-carbon products, technologies, and equipment will be improved and lists of technologies will be issued at regular intervals. Supervision over energy conservation will be strengthened. Stronger support will be provided for the development of renewable energy sources, and subsidies for all fossil fuels will be phased out. A system for controlling total national carbon emissions and a mechanism for breaking down the responsibility for implementation will be gradually established. A mechanism for effectively increasing forest, grassland, wetland, and ocean carbon sinks will be set up. China’s involvement in international cooperation on responding to climate change will be strengthened.

（二十）建立天然林保护制度。将所有天然林纳入保护范围。建立国家用材林储备制度。逐步推进国有林区政企分开，完善以购买服务为主的国有林场公益林管护机制。完善集体林权制度，稳定承包权，拓展经营权能，健全林权抵押贷款和流转制度。

20. Establishing a system for protecting virgin forests

All virgin forests will be placed under protection. A national timber forest reserve system will be established. Government administration will be gradually separated from the management of state-owned forests, and the public benefit forest protection and management system will be improved for state-owned forestry farms drawing principally on service procurement. The collective forest tenure system will be improved. Tenure contracts for collective forests will be kept stable, the operations allowed under these contracts will be expanded, and the systems by which forest tenure rights are used as collateral for loans and tenure rights are transferred will be improved.

（二十一）建立草原保护制度。稳定和完善草原承包经营制度，实现草原承包地块、面积、合同、证书“四到户”，规范草原经营权流转。实行基本草原保护制度，确保基本草原面积不减少、质量不下降、用途不改变。健全草原生态保护补奖机制，实施禁牧休牧、划区轮牧和草畜平衡等制度。加强对草原征用使用审核审批的监管，严格控制草原非牧使用。

21. Establishing a system for protecting grassland

The system by which collective grassland is contracted out for operation to individual households will be kept stable and improved to ensure that the plot and area of every piece of grassland contracted out is measured accurately, contracts are signed, and contracting certificates are granted. Proper procedures will be introduced for the transfer of grassland under such contracts. A system for protecting basic grassland will be put into effect to ensure that the area of basic grassland does not diminish, its quality does not deteriorate, and it is not converted for any other use. The subsidy and award mechanisms for the ecological conservation of grassland will be improved. Grazing on certain areas of grassland will be banned or temporarily suspended, rotational paddock grazing will be introduced, and efforts will be made to strike a balance between grass and livestock. Oversight over there view and approval of grassland requisitions will be strengthened and the use of grassland for any purpose other than animal husbandry will be strictly controlled.

（二十二）建立湿地保护制度。将所有湿地纳入保护范围，禁止擅自征用占用国际重要湿地、国家重要湿地和湿地自然保护区。确定各类湿地功能，规范保护利用行为，建立湿地生态修复机制。

22. Establishing a system for protecting wetlands

All wetlands will be placed under protection, and the unauthorized requisition or occupancy of wetlands of international importance, and those of national importance, and wetland reserves will be banned. The services of wetlands will be determined, their protection and utilization will be standardized, and a mechanism for the ecological restoration of wetlands will be established.

（二十三）建立沙化土地封禁保护制度。将暂不具备治理条件的连片沙化土地划为沙化土地封禁保护区。建立严格保护制度，加强封禁和管护基础设施建设，加强沙化土地治理，增加植被，合理发展沙产业，完善以购买服务为主的管护机制，探索开发与治理结合新机制。

23. Establishing a system for closing off desertified land for protection

Contiguous areas of desertified land for which conditions are not currently in place to carry out anti-desertification programs will be designated as closed-off protection zones. Systems for strict protection will be established, construction of infrastructure needed to close off and protect and manage such zones will be stepped up, desertified land governance will be strengthened, and vegetation will be increased. The appropriate development of the sand industry will be encouraged. The mechanisms for protection and management drawing principally on service procurement will be improved. New approaches that combine development with governance will be explored.

（二十四）健全海洋资源开发保护制度。实施海洋主体功能区制度，确定近海海域海岛主体功能，引导、控制和规范各类用海用岛行为。实行围填海总量控制制度，对围填海面积实行约束性指标管理。建立自然岸线保有率控制制度。完善海洋渔业资源总量管理制度，严格执行休渔禁渔制度，推行近海捕捞限额管理，控制近海和滩涂养殖规模。健全海洋督察制度。

24. Improving the system for developing and protecting marine resources

Marine functional zones will be established, the major functions of offshore waters and islands will be determined, and efforts will be made to guide, control, and standardize behavior related to the use of oceans and islands. A system will be introduced to control total sea reclamation, imposing binding limits on the total area of ocean over which reclamation can take place. A system will be established for maintaining natural coastlines. The system for managing total marine fishery resources will be improved. The systems for instituting fishing off-seasons and bans on fishing will be strictly enforced. Limits on offshore fishing will be imposed. The scale of offshore and mudflat aquaculture will be controlled.

（二十五）健全矿产资源开发利用管理制度。建立矿产资源开发利用水平调查评估制度，加强矿产资源查明登记和有偿计时占用登记管理。建立矿产资源集约开发机制，提高矿区企业集中度，鼓励规模化开发。完善重要矿产资源开采回采率、选矿回收率、综合利用率等国家标准。健全鼓励提高矿产资源利用水平的经济政策。建立矿山企业高效和综合利用信息公示制度，建立矿业权人“黑名单”制度。完善重要矿产资源回收利用的产业化扶持机制。完善矿山地质环境保护和土地复垦制度。

25. Improving the system for managing the development and utilization of mineral resources

A system for the investigation and evaluation of the development and utilization of mineral resources will be established. The ascertainment and registration of mineral resources and registration management of their pay-per-time occupation will be strengthened. A mechanism for the intensive development of mineral resources will be established, the concentration of enterprises in mining areas will be increased, and large-scale development is encouraged. National standards including those regarding the mining recovery rate of major mineral resources, ore dressing recovery rate, and the comprehensive utilization rate of mineral resources will be improved. The economic policies for encouraging better utilization of mineral resources will be refined. A system will be established to make available to the public information on whether mining enterprises are utilizing mineral resources efficiently and comprehensively, and a system will be set up for blacklisting those breaking mining operation rules. The mechanism for introducing industry-based approaches will be improved to support the recycling of major mineral resources. The systems for protecting the geological environment in mining areas and reclaiming deserted areas will also be improved.

（二十六）完善资源循环利用制度。建立健全资源产出率统计体系。实行生产者责任延伸制度，推动生产者落实废弃产品回收处理等责任。建立种养业废弃物资源化利用制度，实现种养业有机结合、循环发展。加快建立垃圾强制分类制度。制定再生资源回收目录，对复合包装物、电池、农膜等低值废弃物实行强制回收。加快制定资源分类回收利用标准。建立资源再生产品和原料推广使用制度，相关原材料消耗企业要使用一定比例的资源再生产品。完善限制一次性用品使用制度。落实并完善资源综合利用和促进循环经济发展的税收政策。制定循环经济技术目录，实行政府优先采购、贷款贴息等政策。

26. Improving the system of resource recycling

An effective system will be established to record resource-output ratio statistics. The extended producer responsibility (EPR) system will be put into effect, pushing producers to perform their responsibilities for take-back and disposal of their end-of-life products. A system will be established to utilize farming, livestock, and aquaculture waste and achieve the organic integration and circular development of farming, husbandry, and aquaculture. The establishment of a system for making the separation of waste compulsory will be accelerated. A list of renewable resources to be recycled will be worked out and the mandatory recycling of composite packaging, batteries, agricultural plastic sheeting, and other low-value waste will be required. Efforts will be accelerated to develop standards for the recycling and reuse of resources by type. A system for promoting the use of products and raw materials made of recycled resources will be established to require enterprises consuming related raw materials to use a certain proportion of recycled products. The system for restricting the use of single-use disposable products will be improved. Taxation policies will be implemented and improved to promote the comprehensive utilization of resources and the development of the circular economy. A list of circular economy technologies will be formulated and policies such as priority government procurement and discounted interest on loans will be implemented.

六、健全资源有偿使用和生态补偿制度

VI. Improving the System for Payment-Based Resource Consumption and Compensating Conservation and Protection Efforts

（二十七）加快自然资源及其产品价格改革。按照成本、收益相统一的原则，充分考虑社会可承受能力，建立自然资源开发使用成本评估机制，将资源所有者权益和生态环境损害等纳入自然资源及其产品价格形成机制。加强对自然垄断环节的价格监管，建立定价成本监审制度和价格调整机制，完善价格决策程序和信息公开制度。推进农业水价综合改革，全面实行非居民用水超计划、超定额累进加价制度，全面推行城镇居民用水阶梯价格制度。

27. Accelerating price reform for natural resources and their products

In line with the principles of cost-benefit balancing and based on full consideration of society’ s ability to tolerate price increases, a cost assessment mechanism for natural resource exploitation and consumption will be established to incorporate the interests of resource owners and any ecological and environmental damage into the pricing mechanism for natural resources and their products. Price regulation over natural monopolies will be strengthened. A system will be created for overseeing and reviewing the pricing cost and a mechanism will be established for making pricing adjustments. Procedures for decision-making on pricing and the information disclosure system will be improved. The overall price reform of water for agricultural purposes will be moved forward. A system of progressive pricing for water will be put into full practice for non-household water consumption that exceeds plans or quotas for water consumption, and a system of tiered pricing for urban household water consumption will be fully implemented.

（二十八）完善土地有偿使用制度。扩大国有土地有偿使用范围，扩大招拍挂出让比例，减少非公益性用地划拨，国有土地出让收支纳入预算管理。改革完善工业用地供应方式，探索实行弹性出让年限以及长期租赁、先租后让、租让结合供应。完善地价形成机制和评估制度，健全土地等级价体系，理顺与土地相关的出让金、租金和税费关系。建立有效调节工业用地和居住用地合理比价机制，提高工业用地出让地价水平，降低工业用地比例。探索通过土地承包经营、出租等方式，健全国有农用地有偿使用制度。

28. Improving the payment-based system for land use

The scope of state-owned land that is operated on the basis of a payment-based use system will be expanded. The proportion of land for which use rights can be transferred through bidding, auction, or listing will be enlarged. Less land will be allocated for non-public use. Income and expenditures related to selling use rights for state-owned land will be incorporated into public budgeting. Industrial-land supply methods will be reformed and improved, with the implementation of flexible transfer periods, long-term leasing, lease-then-sell arrangements, and lease-and-sell arrangements being explored. The mechanisms for setting and appraising land prices will be improved. The system of grade-based pricing for land will be refined. The relationship of land-related transaction and lease expenses with taxes and fees will be straightened out. An effective regulatory mechanism will be put in place to achieve reasonable price parity between industrial-use and residential-use land. Prices of industrial-use land will be raised, and the proportion of industrial-use land will be reduced. Methods such as land contracting and leasing out will be explored to improve the payment-based use system for state-owned land for agricultural use.

（二十九）完善矿产资源有偿使用制度。完善矿业权出让制度，建立符合市场经济要求和矿业规律的探矿权采矿权出让方式，原则上实行市场化出让，国有矿产资源出让收支纳入预算管理。理清有偿取得、占用和开采中所有者、投资者、使用者的产权关系，研究建立矿产资源国家权益金制度。调整探矿权采矿权使用费标准、矿产资源最低勘查投入标准。推进实现全国统一的矿业权交易平台建设，加大矿业权出让转让信息公开力度。

29. Improving the payment-based system for mineral resource use

Improvements will be made to the system for the sale of mining rights, and means suited to a market economy and the nature of the mining industry will be established for the sale of prospecting and extraction rights. In principle, the sale of these rights will be market-oriented, and the income and expenditures related to the sale of state-owned mineral resources will be incorporated into public budgeting. The property rights of owners, investors, and operators during the processes of payment-based acquisition, possession, and exploitation will be clarified, and research will be conducted into the development of a system of national premiums for the use of mineral resources. Standard fees for the use of prospecting and extraction rights, and minimum investment in mineral prospecting will be adjusted. Progress will be made in building a nationally unified mining rights exchange, and efforts in information disclosure on the sale and transfer of such rights will be intensified.

（三十）完善海域海岛有偿使用制度。建立海域、无居民海岛使用金征收标准调整机制。建立健全海域、无居民海岛使用权招拍挂出让制度。

30. Improving the payment-based system for use of sea areas and offshore islands

A mechanism will be created for adjusting use fees for sea areas and uninhabited islands. An effective system will be established for the sale of use rights for sea areas and uninhabited islands through bidding, auction, and listing.

（三十一）加快资源环境税费改革。理顺自然资源及其产品税费关系，明确各自功能，合理确定税收调控范围。加快推进资源税从价计征改革，逐步将资源税扩展到占用各种自然生态空间，在华北部分地区开展地下水征收资源税改革试点。加快推进环境保护税立法。

31. Accelerating reform of resource and environmental taxes and fees

The taxes and fees for natural resources and their products will be straightened out, their respective purposes will be clarified, and the appropriate scope of taxation regulation will be defined. Faster progress will be made in introducing price-based on resources. The scope of resource taxes will be gradually expanded to cover the use of all kinds of ecological spaces. A trial reform will be carried out in parts of northern China to levy a resource tax on groundwater. The development of legislation on environmental protection tax will also be accelerated.

（三十二）完善生态补偿机制。探索建立多元化补偿机制，逐步增加对重点生态功能区转移支付，完善生态保护成效与资金分配挂钩的激励约束机制。制定横向生态补偿机制办法，以地方补偿为主，中央财政给予支持。鼓励各地区开展生态补偿试点，继续推进新安江水环境补偿试点，推动在京津冀水源涵养区、广西广东九洲江、福建广东汀江－韩江等开展跨地区生态补偿试点，在长江流域水环境敏感地区探索开展流域生态补偿试点。

32. Improving the ecological compensation system

Explorations will be made into establishing a diversified compensation mechanism, transfer payments to major ecological functional zones will be increased step by step, and the incentive mechanism that links ecological protection performance with fund allocation will be improved. Measures will be drawn up for implementing a mechanism, principally for local compensation, and supported by additional funds from the central budget, by which local governments compensate each other for ecological or environmental damage and ecological conservation efforts. Local governments are encouraged to launch ecological compensation trials. Efforts will continue in carrying out the ecological compensation pilot initiative for the Xin’an River ecosystem. Help will be given to carry out trans-regional ecological compensation pilot initiatives in the Beijing-Tianjin-Hebei water source conservation area, in areas along the Jiuzhou River in Guangxi and Guangdong, and in areas along the Ting and Han rivers in Fujian and Guangdong. Explorations will be made into carrying out pilot ecological compensation initiatives in the Yangtze River basin- an environmentally sensitive region.

（三十三）完善生态保护修复资金使用机制。按照山水林田湖系统治理的要求，完善相关资金使用管理办法，整合现有政策和渠道，在深入推进国土江河综合整治的同时，更多用于青藏高原生态屏障、黄土高原－川滇生态屏障、东北森林带、北方防沙带、南方丘陵山地带等国家生态安全屏障的保护修复。

33. Improving the mechanism for utilizing ecological protection and restoration funds

Given the need for systematic governance of mountains, forests, farmland, rivers, and lakes, the measures for utilizing and managing relevant funds will be improved and existing policies and channels will be integrated. At the same time as efforts are being made to comprehensively improve the conditions of rivers throughout their entire drainage basins, more funds will be spent on the protection and restoration of national ecological-security shields, such as the Qinghai-Tibet Plateau ecological shield, the Loess Plateau-Sichuan-Yunnan ecological shield, the northeast China forest belt, the northern China desertification-prevention belt, and the southern China mountainous belt.

（三十四）建立耕地草原河湖休养生息制度。编制耕地、草原、河湖休养生息规划，调整严重污染和地下水严重超采地区的耕地用途，逐步将25度以上不适宜耕种且有损生态的陡坡地退出基本农田。建立巩固退耕还林还草、退牧还草成果长效机制。开展退田还湖还湿试点，推进长株潭地区土壤重金属污染修复试点、华北地区地下水超采综合治理试点。

34. Creating a recuperation system for farmland, grasslands, rivers, and lakes

A recuperation plan will be formulated for farmland, grassland, rivers, and lakes, adjusting the use of farmland in areas where there is heavy pollution or where groundwater has been over-extracted. Basic agricultural activity from land sloped greater than 25 degrees, which is not suitable for, and the ecosystem of which is harmed by, cultivation, will be gradually excluded from classification as basic cropland. A permanent mechanism will be formulated to consolidate progress in returning farmland to forest and grassland and converting grazing land back into grassland. Pilot projects will be launched to return cultivated land to lakes and wetlands. Efforts will be made to move forward with the pilot initiative for the restoration of heavy-metal contaminated soil in the Changsha-Zhuzhou-Xiangtan region, as well as the pilot project to comprehensively deal with the over-extraction of groundwater in northern China.

七、建立健全环境治理体系

VII. Establishing an Effective System for Environmental Governance

（三十五）完善污染物排放许可制。尽快在全国范围建立统一公平、覆盖所有固定污染源的企业排放许可制，依法核发排污许可证，排污者必须持证排污，禁止无证排污或不按许可证规定排污。

35. Improving the pollutant emissions permit system

A unified and fair business emissions permit system covering all fixed pollution sources will be established quickly nationwide. Emissions permits will be issued in accordance with the law. Emission of pollutants without a permit or in violation of a permit will be prohibited.

（三十六）建立污染防治区域联动机制。完善京津冀、长三角、珠三角等重点区域大气污染防治联防联控协作机制，其他地方要结合地理特征、污染程度、城市空间分布以及污染物输送规律，建立区域协作机制。在部分地区开展环境保护管理体制创新试点，统一规划、统一标准、统一环评、统一监测、统一执法。开展按流域设置环境监管和行政执法机构试点，构建各流域内相关省级涉水部门参加、多形式的流域水环境保护协作机制和风险预警防控体系。建立陆海统筹的污染防治机制和重点海域污染物排海总量控制制度。完善突发环境事件应急机制，提高与环境风险程度、污染物种类等相匹配的突发环境事件应急处置能力。

36. Establishing a mechanism for cooperation within a region in pollution prevention and control

Cooperative mechanisms for joint prevention and control of air pollution will be improved in major areas such as the Beijing-Tianjin-Hebei region, the Yangtze River Delta, and the Pearl River Delta. Regional cooperation mechanisms will be established in other areas, taking into consideration their geographical features, levels of pollution, distribution of urban space, and patterns of pollutant transmission. Trials for creating new administrative systems for environmental protection will be held in some areas, using unified plans, standards, environmental evaluations, monitoring, and law enforcement. Trials will also be launched for the establishment of environmental regulators and administrative law enforcement agencies for river basins. A variety of cooperative mechanisms for protecting the water environments of river basins as well as early-warning systems for risk control will be put in place with the participation of the relevant provincial-level water-related departments within each river basin. An integrated mechanism for pollution prevention and control both on land and at sea and a control system governing the total quantity of pollutants discharged into key marine areas will be set up. The mechanism for responding to environmental emergencies will be improved and China’s capacity for dealing with environmental emergencies of varying degrees of severity and involving different pollutants will be strengthened.

（三十七）建立农村环境治理体制机制。建立以绿色生态为导向的农业补贴制度，加快制定和完善相关技术标准和规范，加快推进化肥、农药、农膜减量化以及畜禽养殖废弃物资源化和无害化，鼓励生产使用可降解农膜。完善农作物秸秆综合利用制度。健全化肥农药包装物、农膜回收贮运加工网络。采取财政和村集体补贴、住户付费、社会资本参与的投入运营机制，加强农村污水和垃圾处理等环保设施建设。采取政府购买服务等多种扶持措施，培育发展各种形式的农业面源污染治理、农村污水垃圾处理市场主体。强化县乡两级政府的环境保护职责，加强环境监管能力建设。财政支农资金的使用要统筹考虑增强农业综合生产能力和防治农村污染。

37. Establishing systems and mechanisms for rural environmental governance

An eco-oriented system of agricultural subsidies will be created. Efforts to formulate and improve relevant technical standards and specifications will be accelerated. Reductions to the use of chemical fertilizers, pesticides, and plastic sheeting and the recycling or safe disposal of animal husbandry waste will be carried out quickly. The production and use of biodegradable plastic sheeting is encouraged. The system for comprehensively utilizing crop straw will be improved. Networks for recycling, storing, transporting, and processing plastic sheeting and chemical fertilizer and pesticide packaging will be improved. Development of environmental protection facilities, such as those for handling rural wastewater and refuse, will be bolstered by subsidies from governments and village collectives, fee payments from residents, and the participation of non-government capital. A variety of assistive measures, including government procurement of services, will be adopted to foster and develop market entities for the control of all types of agricultural pollution from non-point sources and for the handling of rural wastewater and refuse. County- and township-level governments will carry greater responsibility for environmental protection, and efforts to build their capacity for environmental regulation will be boosted. In allocating government funds for supporting agriculture, full consideration should be given to improving overall agricultural production capacity and to preventing and controlling rural pollution.

（三十八）健全环境信息公开制度。全面推进大气和水等环境信息公开、排污单位环境信息公开、监管部门环境信息公开，健全建设项目环境影响评价信息公开机制。健全环境新闻发言人制度。引导人民群众树立环保意识，完善公众参与制度，保障人民群众依法有序行使环境监督权。建立环境保护网络举报平台和举报制度，健全举报、听证、舆论监督等制度。

38. Improving systems for public disclosure of environmental information

Extensive efforts will be made to ensure public availability of environmental information pertaining to the atmosphere, water, and so on, to businesses that emit pollution, and to regulatory bodies. The mechanism for the public release of environmental impact evaluations for development projects will be improved. The environmental spokesperson system will be refined. Efforts will be made to promote awareness for environmental protection among the general public, the system of public participation will be improved, and more work needs to be done to ensure that the people exercise oversight over the environment in a legal and orderly way. An online platform and system will be created for the reporting of offenses related to environmental protection, and systems for offense-reporting, hearings, and public opinion-based oversight will be improved.

（三十九）严格实行生态环境损害赔偿制度。强化生产者环境保护法律责任，大幅度提高违法成本。健全环境损害赔偿方面的法律制度、评估方法和实施机制，对违反环保法律法规的，依法严惩重罚；对造成生态环境损害的，以损害程度等因素依法确定赔偿额度；对造成严重后果的，依法追究刑事责任。

39. Strictly implementing compensation systems for ecological and environmental damage

Manufacturers’ legal responsibilities for environmental protection will be tightened, and the cost of illegal activities will be significantly increased. Legal provisions concerning environmental damage compensation, methods for appraising damage, and mechanisms for enforcing compensation will be improved. In accordance with the law, penalties will be meted out to those who violate environmental laws and regulations, compensation for ecological and environmental damage will be determined by the extent of damage and other factors, and when violations result in serious adverse consequences, criminal liability will be pursued.

（四十）完善环境保护管理制度。建立和完善严格监管所有污染物排放的环境保护管理制度，将分散在各部门的环境保护职责调整到一个部门，逐步实行城乡环境保护工作由一个部门进行统一监管和行政执法的体制。有序整合不同领域、不同部门、不同层次的监管力量，建立权威统一的环境执法体制，充实执法队伍，赋予环境执法强制执行的必要条件和手段。完善行政执法和环境司法的衔接机制。

40. Improving the administrative system for environmental protection

An effective administrative system for environmental protection will be established to strictly regulate the emissions of all pollutants. Duties and responsibilities for environmental protection, which are currently spread across departments, will be assigned to one single department, progressively creating a system whereby one department is responsible for unified regulation and administrative law enforcement over urban and rural environmental protection work. Regulatory authority from different fields and departments and at different levels will be systemically organized to create a unified and authoritative system for environmental law enforcement, strengthen the ranks of law enforcement, and provide those tasked with environmental law enforcement the necessary conditions and means to enforce the law. The mechanisms linking administrative law enforcement and environmental judicial work will be improved.

八、健全环境治理和生态保护市场体系

VIII. Improving the Market System for Environmental Governance and Ecological Conservation

（四十一）培育环境治理和生态保护市场主体。采取鼓励发展节能环保产业的体制机制和政策措施。废止妨碍形成全国统一市场和公平竞争的规定和做法，鼓励各类投资进入环保市场。能由政府和社会资本合作开展的环境治理和生态保护事务，都可以吸引社会资本参与建设和运营。通过政府购买服务等方式，加大对环境污染第三方治理的支持力度。加快推进污水垃圾处理设施运营管理单位向独立核算、自主经营的企业转变。组建或改组设立国有资本投资运营公司，推动国有资本加大对环境治理和生态保护等方面的投入。支持生态环境保护领域国有企业实行混合所有制改革。

41. Fostering market entities for environmental governance and ecological conservation

Systems, mechanisms, policies, and measures that encourage energy efficient and environmentally friendly industries will be adopted. Regulations and practices that hinder fair competition and the creation of a nationally unified market will be discontinued, and all types of investment will be encouraged to enter the environmental protection market. Non-government investors may participate in the development and operation of any environmental governance or ecological conservation program where cooperation between government and non-government investment is viable. By means of government procurement of services and other methods, more support will be provided for third-party governance of environmental pollution. The transformation of organizations in charge of the operation and management of wastewater and refuse treatment facilities into companies that exercise independent accounting and management will be accelerated. Companies that take investment from or are operated with state capital will be set up or created through reorganization in order to encourage greater investment of state capital into environmental governance and ecological conservation. Support will be given to state-owned firms in fields of ecological and environmental protection to reform toward a mixed-ownership system.

（四十二）推行用能权和碳排放权交易制度。结合重点用能单位节能行动和新建项目能评审查，开展项目节能量交易，并逐步改为基于能源消费总量管理下的用能权交易。建立用能权交易系统、测量与核准体系。推广合同能源管理。深化碳排放权交易试点，逐步建立全国碳排放权交易市场，研究制定全国碳排放权交易总量设定与配额分配方案。完善碳交易注册登记系统，建立碳排放权交易市场监管体系。

42. Promoting the trading of energy-use rights and carbon emissions rights

Combined with efforts to see that major energy-consuming organizations increase energy efficiency and to subject new projects to energy reviews, the trading of energy saved on projects will be allowed, and will progressively move toward the trading of energy-use rights based on the cap system for energy consumption. A trading system and a measurement and verification system for energy-use rights will be established. Energy performance contracting will be promoted. Trials of carbon emissions rights trading will be deepened, a national exchange for carbon emissions rights will be progressively created, and a national plan for setting the total trade and quota allocation of carbon emissions rights will be formulated. The carbon trading registration system will be improved and a regulatory system will be established for the carbon emissions rights exchange.

（四十三）推行排污权交易制度。在企业排污总量控制制度基础上，尽快完善初始排污权核定，扩大涵盖的污染物覆盖面。在现行以行政区为单元层层分解机制基础上，根据行业先进排污水平，逐步强化以企业为单元进行总量控制、通过排污权交易获得减排收益的机制。在重点流域和大气污染重点区域，合理推进跨行政区排污权交易。扩大排污权有偿使用和交易试点，将更多条件成熟地区纳入试点。加强排污权交易平台建设。制定排污权核定、使用费收取使用和交易价格等规定。

43. Promoting the trading of pollution rights

On the basis of the cap system for enterprise pollution emissions, improvements will be made as quickly as possible to the granting of initial pollution rights, and coverage will be expanded to include more pollutants. Working from the foundations provided by the current mechanism for granting pollution rights to administrative regions, and on the basis of the best industry-wide levels of pollution emissions, the mechanism will be gradually strengthened to ensure the cap system for enterprise pollution emissions is implemented and the trading of pollution rights creates incentives for emissions reductions at the level of the individual enterprise. In key river basins and key areas for air pollution, implementation of pollution rights trading across administrative regions will be carried out as appropriate. Trials for the payment-based use and trading of pollution rights will be expanded to include more areas where conditions are appropriate. Efforts will be stepped up to improve the pollution rights exchange. Regulations will be developed on granting pollution rights, collecting and using pollution rights use fees, and setting trading prices.

（四十四）推行水权交易制度。结合水生态补偿机制的建立健全，合理界定和分配水权，探索地区间、流域间、流域上下游、行业间、用水户间等水权交易方式。研究制定水权交易管理办法，明确可交易水权的范围和类型、交易主体和期限、交易价格形成机制、交易平台运作规则等。开展水权交易平台建设。

44. Promoting the trading of water rights

Combined with efforts to establish an effective mechanism for compensating the expenses of water ecosystem protection and conservation, water-related rights will be appropriately defined and allocated and ways of trading water rights between regions, between river basins, between the lower and upper reaches of rivers, between industries, and between water users will be explored. Research will be conducted into formulating regulations concerning the trading of water rights, to clearly define the scope and types of tradable water rights, the trading entities and time frames, the mechanisms for determining trading prices, and the rules for the operation of the exchange. An exchange for water rights will be developed.

（四十五）建立绿色金融体系。推广绿色信贷，研究采取财政贴息等方式加大扶持力度，鼓励各类金融机构加大绿色信贷的发放力度，明确贷款人的尽职免责要求和环境保护法律责任。加强资本市场相关制度建设，研究设立绿色股票指数和发展相关投资产品，研究银行和企业发行绿色债券，鼓励对绿色信贷资产实行证券化。支持设立各类绿色发展基金，实行市场化运作。建立上市公司环保信息强制性披露机制。完善对节能低碳、生态环保项目的各类担保机制，加大风险补偿力度。在环境高风险领域建立环境污染强制责任保险制度。建立绿色评级体系以及公益性的环境成本核算和影响评估体系。积极推动绿色金融领域各类国际合作。

45. Establishing a green finance system

Green credit will be promoted, with research being undertaken into adopting methods such as government interest subsidies to boost the level of support. All types of financial institutions are encouraged to step up grants of green loans. Requirements for the due diligence of borrowers as well as their legal responsibilities concerning environmental protection will be clarified. Efforts will be stepped up to further develop the systems related to capital markets. Research will be conducted to explore the establishment of a green stock index and the development of relevant investment products, and studies will be undertaken to explore the issuance of green bonds by banks and enterprises, encouraging the securitization of green credit assets. Support will be given for the launch of multiple types of green development funds, the operations of which will be market-based. A mechanism will be established for the mandatory release of environmental protection information by listed companies. Guaranty mechanisms for energy-efficient, low-carbon, and environmentally friendly projects will be improved, and the level of risk compensation increased. A compulsory liability insurance system for environmental pollution will be established in sectors involving high environmental risks. A green rating system as well as a non-profit system for calculating environmental costs and evaluating environmental impact will be established. Cooperation of all types with other countries will be promoted in green finance.

（四十六）建立统一的绿色产品体系。将目前分头设立的环保、节能、节水、循环、低碳、再生、有机等产品统一整合为绿色产品，建立统一的绿色产品标准、认证、标识等体系。完善对绿色产品研发生产、运输配送、购买使用的财税金融支持和政府采购等政策。

46. Establishing a unified system for green products

Products that are licensed as environmentally friendly, energy-efficient, water-saving, circular, low-carbon, recyclable, or organic will be uniformly classified as green products, and standardized green product standards, certifications, and logos will be established for them. Improvements will be made to policies on fiscal and tax support and government procurement for the research and development, production, transport, delivery, purchase, and use of green products.

九、完善生态文明绩效评价考核和责任追究制度

IX. Improving Ecological Conservation Performance Evaluation and Accountability Systems

（四十七）建立生态文明目标体系。研究制定可操作、可视化的绿色发展指标体系。制定生态文明建设目标评价考核办法，把资源消耗、环境损害、生态效益纳入经济社会发展评价体系。根据不同区域主体功能定位，实行差异化绩效评价考核。

47. Establishing ecological conservation targets

Research will be conducted into developing practicable and visually representable indicators for assessing green development. Measures will be put in place to evaluate the attainment of ecological conservation targets, and indicators for resource consumption, environmental damage, and ecological benefit will be incorporated into a comprehensive evaluation system for economic and social development. Different performance evaluation criteria will be applied to different regions on the basis of their functional zoning.

（四十八）建立资源环境承载能力监测预警机制。研究制定资源环境承载能力监测预警指标体系和技术方法，建立资源环境监测预警数据库和信息技术平台，定期编制资源环境承载能力监测预警报告，对资源消耗和环境容量超过或接近承载能力的地区，实行预警提醒和限制性措施。

48. Establishing monitoring and early-warning mechanisms for environmental and resource carrying capacity

Research will be undertaken into developing indicators and applying the right technology for monitoring and producing early warnings about resource and environmental carrying capacity. Monitoring and early-warning databases and IT platforms will be created for resources and the environment. Reports on monitoring and early-warning about resource and environmental carrying capacity will be prepared at regular intervals, and warnings will be issued and measures taken to place restrictions on regions which have exceeded or are approaching their carrying capacity in terms of resource consumption and environmental capacity.

（四十九）探索编制自然资源资产负债表。制定自然资源资产负债表编制指南，构建水资源、土地资源、森林资源等的资产和负债核算方法，建立实物量核算账户，明确分类标准和统计规范，定期评估自然资源资产变化状况。在市县层面开展自然资源资产负债表编制试点，核算主要自然资源实物量账户并公布核算结果。

49. Exploring the creation of balance sheets for natural resource assets

Guidelines will be formulated on preparing balance sheets for natural resource assets. Asset and liability accounting methods will be developed for use with water, land, forest, and other types of resources; accounts will be established for accounting natural resources in physical terms; classificatory criteria and statistical standards will be clearly laid out; and changes in natural resource assets will be regularly assessed. The preparation of balance sheets for natural resource assets will take place on a trial basis at the municipal (county) level, with physical accounts of major natural resource assets being assessed and results released.

（五十）对领导干部实行自然资源资产离任审计。在编制自然资源资产负债表和合理考虑客观自然因素基础上，积极探索领导干部自然资源资产离任审计的目标、内容、方法和评价指标体系。以领导干部任期内辖区自然资源资产变化状况为基础，通过审计，客观评价领导干部履行自然资源资产管理责任情况，依法界定领导干部应当承担的责任，加强审计结果运用。在内蒙古呼伦贝尔市、浙江湖州市、湖南娄底市、贵州赤水市、陕西延安市开展自然资源资产负债表编制试点和领导干部自然资源资产离任审计试点。

50. Auditing outgoing officials’ management of natural resource assets

On the basis of the preparation of balance sheets for natural resource assets and making reasonable allowance for objective natural factors, active efforts will be made to explore the objectives, content, methods, and appraisal indicators for auditing outgoing officials’ management of natural resource assets. Based on the changes in natural resource assets within their area of jurisdiction during their term of office, through auditing, an objective evaluation will be carried out of the outgoing official’ s management of natural resource assets; an official’ s liability will be determined in accordance with the law, and auditing results will be put to better use. Trials for preparing balance sheets for natural resource assets and for audits of the management of natural resource assets by outgoing officials will be conducted in the cities of Hulun Buir in Inner Mongolia, Huzhou in Zhejiang, Loudi in Hunan, Chishui in Guizhou, and Yan’ an in Shaanxi.

（五十一）建立生态环境损害责任终身追究制。实行地方党委和政府领导成员生态文明建设一岗双责制。以自然资源资产离任审计结果和生态环境损害情况为依据，明确对地方党委和政府领导班子主要负责人、有关领导人员、部门负责人的追责情形和认定程序。区分情节轻重，对造成生态环境损害的，予以诫勉、责令公开道歉、组织处理或党纪政纪处分，对构成犯罪的依法追究刑事责任。对领导干部离任后出现重大生态环境损害并认定其需要承担责任的，实行终身追责。建立国家环境保护督察制度。

51. Establishing a lifelong accountability system for ecological and environmental damage

Leaders of local CPC committees and governments will be responsible for both economic development and ecological progress. On the basis of the results of the natural resource asset audits of outgoing officials and ecological and environmental damage, the circumstances under which the principal leaders of local CPC committees and governments, related leaders, and departmental leaders will be held accountable and the procedures for confirming accountability will be made clear. Those responsible for ecological and environmental damage will, on the basis of the severity of misconduct, be reprimanded, required to make a public apology, or dealt with through organizational, Party, or disciplinary action. For circumstances which constitute a criminal act, criminal liability will be pursued in accordance with the law. A system of lifelong accountability will be put into effect for major ecological and environmental damage which becomes apparent after an official has left office and for which he or she is found liable. A national supervision and inspection system for environmental protection will be established.

十、生态文明体制改革的实施保障

X. Ensuring Successful Implementation of the Reform to Promote Ecological Progress

（五十二）加强对生态文明体制改革的领导。各地区各部门要认真学习领会中央关于生态文明建设和体制改革的精神，深刻认识生态文明体制改革的重大意义，增强责任感、使命感、紧迫感，认真贯彻党中央、国务院决策部署，确保本方案确定的各项改革任务加快落实。各有关部门要按照本方案要求抓紧制定单项改革方案，明确责任主体和时间进度，密切协调配合，形成改革合力。

52. Strengthening leadership over the reform to promote ecological progress

All local governments and departments need to study the central leadership’ s guiding principles on making ecological progress and carrying out reform to this effect, develop a deep understanding of the tremendous significance of this reform, and strengthen their sense of responsibility, sense of purpose, and sense of urgency over its implementation. Local governments and departments need to do their utmost to put into effect the policy decisions and arrangements of the CPC Central Committee and the State Council and see to it that all objectives contained within this reform plan are carried out quickly. In accordance with the requirements set out in this plan, all government departments concerned should promptly draw up plans for implementing each item of the reform, delegate responsibility and set time frames, and through close cooperation and collaboration with others create a concerted reform effort.

（五十三）积极开展试点试验。充分发挥中央和地方两个积极性，鼓励各地区按照本方案的改革方向，从本地实际出发，以解决突出生态环境问题为重点，发挥主动性，积极探索和推动生态文明体制改革，其中需要法律授权的按法定程序办理。将各部门自行开展的综合性生态文明试点统一为国家试点试验，各部门要根据各自职责予以指导和推动。

53. Launching pilot initiatives and explorative projects

Both the central and local governments will play an active role. All local governments are encouraged, in line with the direction of reform set out in this plan, to proactively explore and move forward with the reform to promote ecological progress, treating their local conditions as their point of departure and the solving of serious ecological and environmental problems as their target. Reforms that require legal authorization should be handled in accordance with statutory procedures. Comprehensive pilot initiatives for achieving ecological progress being conducted independently by different government departments will be incorporated into national pilot initiatives and explorative projects and will receive guidance and encouragement from those authorities whose own functions put them in a position to provide such support.

（五十四）完善法律法规。制定完善自然资源资产产权、国土空间开发保护、国家公园、空间规划、海洋、应对气候变化、耕地质量保护、节水和地下水管理、草原保护、湿地保护、排污许可、生态环境损害赔偿等方面的法律法规，为生态文明体制改革提供法治保障。

54. Improving laws and regulations

Legislative support will be provided for the reform to promote ecological progress through the development of effective laws and regulations on property rights for natural resource assets, the development and protection of territorial space, national parks, spatial planning, seas, responses to climate change, protection of cropland quality, water conservation and groundwater management, grassland and wetland preservation, pollutant emission permits, and compensation for ecological and environmental damage.

（五十五）加强舆论引导。面向国内外，加大生态文明建设和体制改革宣传力度，统筹安排、正确解读生态文明各项制度的内涵和改革方向，培育普及生态文化，提高生态文明意识，倡导绿色生活方式，形成崇尚生态文明、推进生态文明建设和体制改革的良好氛围。

55. Improving guidance on public communication

Publicity both in China and abroad on efforts to promote ecological progress and carry out the reform to this effect will be stepped up. This will require coordinated planning and accurate interpretations of each of the systems and the direction of reform-all designed to promote ecological progress. It should cultivate and popularize eco-culture, raise public awareness about ecological progress, and advocate a green life-style, thereby creating a positive social atmosphere in which efforts to promote eco-progress are viewed with respect, and which will help to promote ecological progress and the reform designed to bring about it.

（五十六）加强督促落实。中央全面深化改革领导小组办公室、经济体制和生态文明体制改革专项小组要加强统筹协调，对本方案落实情况进行跟踪分析和督促检查，正确解读和及时解决实施中遇到的问题，重大问题要及时向党中央、国务院请示报告。

56. Exercising stricter supervision over reform implementation

The office of the Central Leading Group for Comprehensively Deepening Reform and the leading group’ s Reform Taskforce for the Promotion of Economic Development and Ecological Progress should strengthen its overall coordination, carry out follow-up analyses and supervisory inspections over the implementation of this plan, accurately interpret and promptly resolve any problems arising during its implementation, and promptly report any major issues to the CPC Central Committee and the State Council.