生(sheng)態(tai)環境監測是(shi)生(sheng)態(tai)環境保護的耳目與(yu)基(ji)(ji)石(shi)。基(ji)(ji)礎不牢，地動山搖。沒有科學(xue)準(zhun)確的監測數據作支撐，生(sheng)態(tai)環保工(gong)作就成(cheng)了無(wu)源之水，無(wu)本之木。生(sheng)態(tai)環保事業發展越快(kuai)，越離不開牢固的監測基(ji)(ji)礎。加(jia)強生(sheng)態(tai)環境監測網絡(luo)建(jian)設，是(shi)大(da)(da)力(li)推進生(sheng)態(tai)文明建(jian)設的重大(da)(da)舉措(cuo)，對于全面建(jian)成(cheng)小康社會(hui)，實現(xian)中華民族永(yong)續發展具有深遠意義。
一、有關(guan)背景
黨中(zhong)央(yang)、國(guo)(guo)務(wu)院(yuan)高度重(zhong)視生(sheng)態環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)測(ce)工(gong)作(zuo)。習近(jin)平總書記對(dui)生(sheng)態文明建(jian)(jian)(jian)設(she)和(he)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)提出一系列(lie)新(xin)(xin)思(si)想新(xin)(xin)論斷新(xin)(xin)要(yao)求，對(dui)抓緊建(jian)(jian)(jian)立(li)資源(yuan)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)承載能力監(jian)(jian)(jian)測(ce)預警機制(zhi)作(zuo)出重(zhong)要(yao)指示。國(guo)(guo)務(wu)院(yuan)領導同志多次(ci)就建(jian)(jian)(jian)設(she)大(da)氣(qi)和(he)水(shui)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)測(ce)網絡(luo)、保(bao)(bao)證監(jian)(jian)(jian)測(ce)數據真實(shi)可靠等作(zuo)出重(zhong)要(yao)批示。《中(zhong)共中(zhong)央(yang)關于全(quan)面深化(hua)改(gai)革若干重(zhong)大(da)問題的(de)(de)決(jue)定》提出“建(jian)(jian)(jian)立(li)和(he)完善嚴格監(jian)(jian)(jian)管(guan)(guan)(guan)所(suo)有污(wu)染(ran)物(wu)排放的(de)(de)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)管(guan)(guan)(guan)理制(zhi)度，獨(du)立(li)進(jin)行環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)管(guan)(guan)(guan)和(he)行政執(zhi)法”。《中(zhong)共中(zhong)央(yang)國(guo)(guo)務(wu)院(yuan)關于加快推(tui)進(jin)生(sheng)態文明建(jian)(jian)(jian)設(she)的(de)(de)意見》提出“利用衛星遙感等技術(shu)手段，對(dui)自然資源(yuan)和(he)生(sheng)態環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)狀況開展全(quan)天候監(jian)(jian)(jian)測(ce)，健全(quan)覆(fu)蓋所(suo)有資源(yuan)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)要(yao)素(su)的(de)(de)監(jian)(jian)(jian)測(ce)網絡(luo)體系”。《環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)法》要(yao)求“國(guo)(guo)家建(jian)(jian)(jian)立(li)、健全(quan)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)測(ce)制(zhi)度。國(guo)(guo)務(wu)院(yuan)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)主管(guan)(guan)(guan)部(bu)門(men)制(zhi)定監(jian)(jian)(jian)測(ce)規范(fan)，會同有關部(bu)門(men)組織監(jian)(jian)(jian)測(ce)網絡(luo)，統(tong)一規劃國(guo)(guo)家環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)質量(liang)(liang)監(jian)(jian)(jian)測(ce)站(點(dian))的(de)(de)設(she)置(zhi)，建(jian)(jian)(jian)立(li)監(jian)(jian)(jian)測(ce)數據共享機制(zhi)，加強對(dui)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)測(ce)的(de)(de)管(guan)(guan)(guan)理”。“國(guo)(guo)務(wu)院(yuan)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護(hu)主管(guan)(guan)(guan)部(bu)門(men)統(tong)一發(fa)布(bu)國(guo)(guo)家環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)質量(liang)(liang)、重(zhong)點(dian)污(wu)染(ran)源(yuan)監(jian)(jian)(jian)測(ce)信(xin)(xin)息及(ji)其(qi)他重(zhong)大(da)環(huan)(huan)境(jing)(jing)(jing)(jing)(jing)(jing)(jing)信(xin)(xin)息”。
為(wei)貫徹落實黨中(zhong)央(yang)、國(guo)務院的(de)決(jue)策部署和《環境保護法》要求，進一步(bu)加強(qiang)生(sheng)(sheng)態(tai)(tai)環境監(jian)測網絡建(jian)設(she)，為(wei)生(sheng)(sheng)態(tai)(tai)環保工作提(ti)供堅強(qiang)有力的(de)支撐(cheng)，環境保護部會(hui)同有關(guan)部門編制了《生(sheng)(sheng)態(tai)(tai)環境監(jian)測網絡建(jian)設(she)方(fang)案(an)》(以下簡(jian)稱《方(fang)案(an)》)，并經中(zhong)央(yang)全面深化改革(ge)領導小組第十(shi)四次會(hui)議(yi)審(shen)議(yi)通過，已由(you)國(guo)務院辦公廳正式(shi)印發。
二、加強(qiang)生態環(huan)境監測網絡建設的必要性
我國(guo)環(huan)(huan)(huan)(huan)境(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)工(gong)作(zuo)經過近40年(nian)(nian)的發展(zhan)建設(she)，已(yi)經改(gai)變(bian)了(le)(le)(le)(le)靠(kao)“眼睛看、鼻子聞(wen)、耳朵聽(ting)”的落(luo)后面貌，建成(cheng)了(le)(le)(le)(le)較為完(wan)善的生(sheng)態(tai)環(huan)(huan)(huan)(huan)境(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)網絡并及時向人(ren)民群(qun)眾發布各類監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)信息。當前，全(quan)國(guo)環(huan)(huan)(huan)(huan)保系統按照(zhao)空氣(qi)質(zhi)量新標準(zhun)(zhun)建成(cheng)了(le)(le)(le)(le)發展(zhan)中國(guo)家最大(da)的空氣(qi)質(zhi)量監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)網，所有地(di)級(ji)以上城市都按照(zhao)新的空氣(qi)質(zhi)量標準(zhun)(zhun)開展(zhan)了(le)(le)(le)(le)PM2.5在內的6項(xiang)主要空氣(qi)污(wu)染物監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)，并實(shi)時發布監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)信息。同時，水(shui)環(huan)(huan)(huan)(huan)境(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)網絡不斷完(wan)善，縣(xian)域生(sheng)態(tai)環(huan)(huan)(huan)(huan)境(jing)質(zhi)量監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)取(qu)得(de)重(zhong)大(da)進展(zhan)，完(wan)成(cheng)了(le)(le)(le)(le)土壤環(huan)(huan)(huan)(huan)境(jing)背景值調查和土壤環(huan)(huan)(huan)(huan)境(jing)質(zhi)量專項(xiang)調查，空氣(qi)質(zhi)量預報(bao)預警(jing)和顆(ke)粒物源解析工(gong)作(zuo)全(quan)面開展(zhan)。2012年(nian)(nian)成(cheng)功(gong)發射環(huan)(huan)(huan)(huan)境(jing)一(yi)(yi)號C星，與環(huan)(huan)(huan)(huan)境(jing)一(yi)(yi)號A/B星3星組網，形成(cheng)了(le)(le)(le)(le)環(huan)(huan)(huan)(huan)境(jing)衛星“2+1”星座，實(shi)現(xian)了(le)(le)(le)(le)2-3天對全(quan)國(guo)覆蓋一(yi)(yi)次(ci)的遙感監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)能力，初步建成(cheng)了(le)(le)(le)(le)天地(di)一(yi)(yi)體化監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)系統。環(huan)(huan)(huan)(huan)境(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)工(gong)作(zuo)實(shi)現(xian)了(le)(le)(le)(le)從(cong)手工(gong)到(dao)(dao)自(zi)動(dong)，從(cong)粗放(fang)到(dao)(dao)精準(zhun)(zhun)，從(cong)分(fen)散封閉(bi)到(dao)(dao)集成(cheng)聯(lian)動(dong)，從(cong)現(xian)狀(zhuang)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)到(dao)(dao)預測(ce)(ce)(ce)(ce)(ce)預警(jing)的全(quan)面而(er)深刻的轉變(bian)，為生(sheng)態(tai)文明建設(she)和環(huan)(huan)(huan)(huan)境(jing)保護工(gong)作(zuo)提供了(le)(le)(le)(le)強(qiang)有力的支撐。此外(wai)，國(guo)務院(yuan)水(shui)利、國(guo)土、海洋、農業(ye)、氣(qi)象、林業(ye)等部(bu)門也根據各自(zi)管(guan)理需要建立(li)了(le)(le)(le)(le)相應(ying)的監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)網絡，開展(zhan)了(le)(le)(le)(le)地(di)表水(shui)、地(di)下(xia)水(shui)、海水(shui)、土壤、生(sheng)態(tai)等領域的監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)。
但是(shi)，面(mian)對當前生(sheng)(sheng)態(tai)(tai)(tai)文明建(jian)設(she)(she)(she)的(de)新形勢和新要(yao)(yao)求(qiu)，我(wo)國(guo)生(sheng)(sheng)態(tai)(tai)(tai)環(huan)(huan)境(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)事業(ye)發(fa)展還存在網(wang)絡(luo)范圍和要(yao)(yao)素覆(fu)蓋不(bu)(bu)全，建(jian)設(she)(she)(she)規(gui)劃、標準規(gui)范與信息發(fa)布不(bu)(bu)統一，信息化(hua)水(shui)平(ping)和共享程度(du)不(bu)(bu)高，監(jian)(jian)(jian)(jian)(jian)測(ce)與監(jian)(jian)(jian)(jian)(jian)管(guan)結合不(bu)(bu)緊(jin)密，監(jian)(jian)(jian)(jian)(jian)測(ce)數據質(zhi)量有(you)(you)待提高等(deng)突出(chu)問題(ti)，難以滿(man)足生(sheng)(sheng)態(tai)(tai)(tai)文明建(jian)設(she)(she)(she)需(xu)要(yao)(yao)，影(ying)響了(le)監(jian)(jian)(jian)(jian)(jian)測(ce)的(de)科學性(xing)、權威性(xing)和政府(fu)的(de)公信力(li)。為此，必(bi)須加(jia)快推進生(sheng)(sheng)態(tai)(tai)(tai)環(huan)(huan)境(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)網(wang)絡(luo)建(jian)設(she)(she)(she)改革，緊(jin)緊(jin)圍繞影(ying)響生(sheng)(sheng)態(tai)(tai)(tai)環(huan)(huan)境(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)網(wang)絡(luo)建(jian)設(she)(she)(she)的(de)突出(chu)問題(ti)，強化(hua)監(jian)(jian)(jian)(jian)(jian)測(ce)質(zhi)量監(jian)(jian)(jian)(jian)(jian)管(guan)，落實政府(fu)、企業(ye)、社會(hui)的(de)責任和權利。要(yao)(yao)依(yi)靠(kao)科技創新和技術進步，提高生(sheng)(sheng)態(tai)(tai)(tai)環(huan)(huan)境(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)立體(ti)化(hua)、自動化(hua)、智能化(hua)水(shui)平(ping)，推進全國(guo)生(sheng)(sheng)態(tai)(tai)(tai)環(huan)(huan)境(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)數據聯網(wang)共享，開展生(sheng)(sheng)態(tai)(tai)(tai)環(huan)(huan)境(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)數據分(fen)析(xi)，實現生(sheng)(sheng)態(tai)(tai)(tai)環(huan)(huan)境(jing)(jing)監(jian)(jian)(jian)(jian)(jian)測(ce)和監(jian)(jian)(jian)(jian)(jian)管(guan)有(you)(you)效聯動。
三、生態環境(jing)監測網絡建設的基本(ben)原則與主要目標(biao)
《方(fang)案》以鄧(deng)小平理論、“三個代表”重要(yao)思想、科學發展觀為指導(dao)(dao)，深入(ru)貫徹習(xi)近平總(zong)書記系列重要(yao)講話精(jing)神，全面落實黨(dang)的(de)十(shi)八(ba)大和十(shi)八(ba)屆二中(zhong)(zhong)(zhong)、三中(zhong)(zhong)(zhong)、四中(zhong)(zhong)(zhong)全會精(jing)神，按照黨(dang)中(zhong)(zhong)(zhong)央、國務院(yuan)(yuan)統一部(bu)署，落實《中(zhong)(zhong)(zhong)華人民共和國環境(jing)保護法》和《中(zhong)(zhong)(zhong)共中(zhong)(zhong)(zhong)央國務院(yuan)(yuan)關于加快(kuai)推進(jin)(jin)生(sheng)態(tai)文明建設的(de)意(yi)見》要(yao)求，堅持全面設點、全國聯網(wang)、自動(dong)預警、依法追(zhui)責，形成(cheng)政府主導(dao)(dao)、部(bu)門協同、社(she)會參(can)與、公眾監督(du)的(de)生(sheng)態(tai)環境(jing)監測新格(ge)局，為加快(kuai)推進(jin)(jin)生(sheng)態(tai)文明、建設美麗中(zhong)(zhong)(zhong)國提(ti)供有(you)力保障。
《方(fang)案》提出(chu)，生態環(huan)境監(jian)測(ce)(ce)網絡建設要(yao)堅(jian)持(chi)“明(ming)晰事權、落實(shi)責任，健(jian)全制度、統(tong)籌規劃，科學監(jian)測(ce)(ce)、創新驅(qu)動，綜合(he)集成、測(ce)(ce)管協同”的(de)基本原(yuan)則。
生(sheng)(sheng)(sheng)(sheng)態環(huan)(huan)境監(jian)測(ce)網絡建設(she)的(de)主要目標(biao)是：到(dao)2020年，全國(guo)生(sheng)(sheng)(sheng)(sheng)態環(huan)(huan)境監(jian)測(ce)網絡要基本實現環(huan)(huan)境質量(liang)、重點污染(ran)源(yuan)、生(sheng)(sheng)(sheng)(sheng)態狀況監(jian)測(ce)全覆蓋，各級各類(lei)監(jian)測(ce)數(shu)據系(xi)統互聯(lian)共(gong)享，監(jian)測(ce)預報預警、信(xin)息化能力(li)和保障水平明顯提升(sheng)，監(jian)測(ce)與(yu)監(jian)管協同聯(lian)動(dong)，初步建成陸海統籌(chou)、天(tian)地一體、上下協同、信(xin)息共(gong)享的(de)生(sheng)(sheng)(sheng)(sheng)態環(huan)(huan)境監(jian)測(ce)網絡，使(shi)生(sheng)(sheng)(sheng)(sheng)態環(huan)(huan)境監(jian)測(ce)能力(li)與(yu)生(sheng)(sheng)(sheng)(sheng)態文(wen)(wen)明建設(she)要求相適(shi)應。全面(mian)做到(dao)說(shuo)(shuo)清生(sheng)(sheng)(sheng)(sheng)態環(huan)(huan)境質量(liang)及(ji)變化趨(qu)勢、說(shuo)(shuo)清污染(ran)排放狀況、說(shuo)(shuo)清潛(qian)在的(de)生(sheng)(sheng)(sheng)(sheng)態環(huan)(huan)境風(feng)險，為(wei)加(jia)快(kuai)推進生(sheng)(sheng)(sheng)(sheng)態文(wen)(wen)明、建設(she)美麗中國(guo)提供有力(li)保障。
四、生態環境(jing)監測網(wang)絡建(jian)設(she)的基本(ben)思路(lu)
(一)統(tong)(tong)一生態(tai)環(huan)(huan)境(jing)(jing)監(jian)測建設(she)規(gui)(gui)(gui)劃、標準規(gui)(gui)(gui)范。目前我國生態(tai)環(huan)(huan)境(jing)(jing)監(jian)測存在部門間環(huan)(huan)境(jing)(jing)監(jian)測網絡規(gui)(gui)(gui)劃布局(ju)不統(tong)(tong)一，技(ji)術規(gui)(gui)(gui)范、評價方法不統(tong)(tong)一，數據缺乏可比(bi)性。為此，《方案》明(ming)確(que)提(ti)出要(yao)(yao)按照《環(huan)(huan)境(jing)(jing)保(bao)護法》要(yao)(yao)求，環(huan)(huan)境(jing)(jing)保(bao)護部門會同(tong)有(you)關部門統(tong)(tong)一規(gui)(gui)(gui)劃、整合優化環(huan)(huan)境(jing)(jing)質(zhi)量監(jian)測點位，建設(she)涵(han)蓋大氣(qi)、水、土壤、噪聲、輻射(she)等(deng)要(yao)(yao)素，布局(ju)合理、功能完(wan)善的(de)全國環(huan)(huan)境(jing)(jing)質(zhi)量監(jian)測網絡。同(tong)時，要(yao)(yao)統(tong)(tong)一相(xiang)關環(huan)(huan)境(jing)(jing)要(yao)(yao)素的(de)布點、監(jian)測和評價技(ji)術標準規(gui)(gui)(gui)范，并根(gen)據工作需要(yao)(yao)及(ji)時進行(xing)修(xiu)訂完(wan)善。增強各部門生態(tai)環(huan)(huan)境(jing)(jing)監(jian)測數據的(de)可比(bi)性，確(que)保(bao)排(pai)污單位、各類監(jian)測機構的(de)監(jian)測活(huo)動執行(xing)統(tong)(tong)一的(de)技(ji)術標準規(gui)(gui)(gui)范。
(二(er))建(jian)設大(da)數據(ju)(ju)平臺，統(tong)(tong)一(yi)(yi)生態環(huan)(huan)境(jing)(jing)監(jian)(jian)測信(xin)息(xi)(xi)發(fa)布(bu)。當前(qian)，國務院有(you)關部門之(zhi)間(jian)、地(di)方之(zhi)間(jian)以及地(di)方與中央之(zhi)間(jian)監(jian)(jian)測數據(ju)(ju)集成聯網與共享不足，環(huan)(huan)境(jing)(jing)監(jian)(jian)測信(xin)息(xi)(xi)發(fa)布(bu)渠道不統(tong)(tong)一(yi)(yi)等問題，影響政府權威性和公信(xin)力(li)。為此，《方案》提出要加快生態環(huan)(huan)境(jing)(jing)監(jian)(jian)測信(xin)息(xi)(xi)傳(chuan)輸網絡與大(da)數據(ju)(ju)平臺建(jian)設，將國務院相關部門和各地(di)的(de)生態環(huan)(huan)境(jing)(jing)監(jian)(jian)測數據(ju)(ju)進行(xing)聯網共享，大(da)力(li)加強數據(ju)(ju)資源的(de)開(kai)發(fa)與應用。在(zai)信(xin)息(xi)(xi)發(fa)布(bu)方面，依法建(jian)立統(tong)(tong)一(yi)(yi)的(de)生態環(huan)(huan)境(jing)(jing)監(jian)(jian)測信(xin)息(xi)(xi)發(fa)布(bu)制度，實現生態環(huan)(huan)境(jing)(jing)監(jian)(jian)測數據(ju)(ju)統(tong)(tong)一(yi)(yi)發(fa)布(bu)。
(三)突出(chu)(chu)生(sheng)態環境(jing)監(jian)(jian)測(ce)與(yu)(yu)監(jian)(jian)管執法(fa)聯動(dong)。監(jian)(jian)測(ce)和(he)監(jian)(jian)管是(shi)生(sheng)態環境(jing)保(bao)護的(de)重要(yao)(yao)支撐和(he)手(shou)段。針對當前監(jian)(jian)測(ce)與(yu)(yu)監(jian)(jian)管結合(he)不緊密、對追究各級政府(fu)和(he)企業相關生(sheng)態環境(jing)保(bao)護責任(ren)支撐不足的(de)問(wen)題，《方(fang)案》提出(chu)(chu)要(yao)(yao)充分利(li)用生(sheng)態環境(jing)監(jian)(jian)測(ce)結果考核問(wen)責政府(fu)環保(bao)責任(ren)落實情況，依托(tuo)重點排(pai)污(wu)(wu)單(dan)位污(wu)(wu)染(ran)源監(jian)(jian)測(ce)建(jian)立(li)監(jian)(jian)測(ce)與(yu)(yu)執法(fa)相結合(he)的(de)快(kuai)速響應體系，實現監(jian)(jian)測(ce)與(yu)(yu)監(jian)(jian)管有效聯動(dong)。同(tong)時，《方(fang)案》提出(chu)(chu)要(yao)(yao)加(jia)強自動(dong)預(yu)(yu)警，科學引(yin)導環境(jing)管理與(yu)(yu)風(feng)險防范。主要(yao)(yao)包括(kuo)，加(jia)強空氣(qi)、水、土壤等環境(jing)質量監(jian)(jian)測(ce)預(yu)(yu)報預(yu)(yu)警。嚴密監(jian)(jian)控企業污(wu)(wu)染(ran)排(pai)放，完善重點排(pai)污(wu)(wu)單(dan)位污(wu)(wu)染(ran)排(pai)放自動(dong)監(jian)(jian)測(ce)與(yu)(yu)異(yi)常報警機制。提升生(sheng)態環境(jing)風(feng)險監(jian)(jian)測(ce)評(ping)(ping)估(gu)(gu)與(yu)(yu)預(yu)(yu)警能力，建(jian)立(li)生(sheng)態保(bao)護紅線監(jian)(jian)管平臺，對重要(yao)(yao)生(sheng)態功能區人類干(gan)擾、生(sheng)態破壞等活動(dong)的(de)監(jian)(jian)測(ce)、評(ping)(ping)估(gu)(gu)與(yu)(yu)預(yu)(yu)警。
(四(si))明晰生態環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)事(shi)權(quan)與責任(ren)。當(dang)前各(ge)(ge)級(ji)政府(fu)、企業、社(she)(she)會(hui)的(de)環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)事(shi)權(quan)劃分不夠(gou)清晰，存在(zai)責任(ren)落實不到位(wei)、監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)數據受行政干預(yu)的(de)現(xian)象，對科學評價環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)質量、環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護目標考(kao)核等造成了一定的(de)影響。因此，首先(xian)必(bi)須(xu)(xu)明確各(ge)(ge)級(ji)政府(fu)生態環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)事(shi)權(quan)和責任(ren)，《方案》提出各(ge)(ge)級(ji)環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護部門主要(yao)承(cheng)擔(dan)生態環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)質量監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)、重點(dian)(dian)污(wu)(wu)染源(yuan)監(jian)(jian)(jian)(jian)督監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)、環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)執法(fa)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)、環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)應(ying)急與預(yu)報預(yu)警等職能。環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護部適度上收生態環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)質量監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)事(shi)權(quan)，以準確掌握(wo)、客觀評價全(quan)國(guo)生態環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)質量總體(ti)狀況(kuang)。地方各(ge)(ge)級(ji)環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護部門相應(ying)上收生態環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)質量監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)事(shi)權(quan)。第(di)二，要(yao)求各(ge)(ge)級(ji)政府(fu)確定的(de)重點(dian)(dian)排(pai)(pai)污(wu)(wu)單位(wei)必(bi)須(xu)(xu)落實污(wu)(wu)染排(pai)(pai)放自(zi)行監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)及(ji)信息公(gong)開的(de)法(fa)定責任(ren)，政府(fu)要(yao)加(jia)強污(wu)(wu)染源(yuan)監(jian)(jian)(jian)(jian)督性監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)和監(jian)(jian)(jian)(jian)管。第(di)三，大力推(tui)(tui)(tui)動環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)社(she)(she)會(hui)化(hua)服務(wu)(wu)，積極培育生態環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)市(shi)場，明確提出開放服務(wu)(wu)性監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)市(shi)場，并在(zai)基(ji)礎公(gong)益性監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)領域積極推(tui)(tui)(tui)進政府(fu)購買服務(wu)(wu)。同時，要(yao)求環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)保(bao)(bao)護部制定相關(guan)政策(ce)和辦法(fa)，有序推(tui)(tui)(tui)進環(huan)(huan)(huan)境(jing)(jing)(jing)(jing)(jing)監(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)服務(wu)(wu)社(she)(she)會(hui)化(hua)、制度化(hua)、規范化(hua)。
(五)加強(qiang)對(dui)各(ge)類(lei)生態(tai)(tai)(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)機(ji)(ji)構(gou)(gou)的(de)(de)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)管(guan)。針對(dui)實際工(gong)作中(zhong)，部(bu)分生態(tai)(tai)(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)機(ji)(ji)構(gou)(gou)不能嚴格履職、監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)質量不高(gao)以及責(ze)(ze)任(ren)追究(jiu)不到位等(deng)突出問題，《方(fang)案》在加強(qiang)對(dui)各(ge)類(lei)生態(tai)(tai)(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)機(ji)(ji)構(gou)(gou)的(de)(de)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)管(guan)方(fang)面提出了明確措施和(he)(he)要求。首(shou)先(xian)，各(ge)級相關部(bu)門所屬生態(tai)(tai)(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)機(ji)(ji)構(gou)(gou)、從事環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)設(she)備運營(ying)(ying)維護的(de)(de)機(ji)(ji)構(gou)(gou)、社會環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)機(ji)(ji)構(gou)(gou)及其負責(ze)(ze)人要嚴格按照法(fa)律(lv)法(fa)規(gui)(gui)要求和(he)(he)生態(tai)(tai)(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)技術規(gui)(gui)范履行(xing)(xing)職責(ze)(ze)，對(dui)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)數(shu)(shu)據(ju)的(de)(de)真實性(xing)和(he)(he)準確性(xing)負責(ze)(ze)。第(di)二，環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)保護部(bu)要依法(fa)建立健(jian)全對(dui)不同類(lei)型(xing)生態(tai)(tai)(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)機(ji)(ji)構(gou)(gou)及從事環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)設(she)備運營(ying)(ying)維護機(ji)(ji)構(gou)(gou)的(de)(de)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)管(guan)制(zhi)度，制(zhi)定環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)數(shu)(shu)據(ju)弄虛作假處(chu)(chu)理辦(ban)法(fa)等(deng)規(gui)(gui)定。各(ge)級環(huan)(huan)(huan)(huan)(huan)(huan)保部(bu)門要加大監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)質量核查(cha)巡查(cha)力(li)度，加強(qiang)對(dui)各(ge)類(lei)生態(tai)(tai)(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)機(ji)(ji)構(gou)(gou)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)業(ye)務活動(dong)的(de)(de)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)管(guan)，嚴肅查(cha)處(chu)(chu)故意(yi)違反環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)技術規(gui)(gui)范，篡改、偽(wei)造(zao)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)數(shu)(shu)據(ju)的(de)(de)行(xing)(xing)為。第(di)三，對(dui)于(yu)黨政(zheng)領導干部(bu)指使篡改、偽(wei)造(zao)監(jian)(jian)(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)數(shu)(shu)據(ju)的(de)(de)，按照《黨政(zheng)領導干部(bu)生態(tai)(tai)(tai)環(huan)(huan)(huan)(huan)(huan)(huan)境(jing)(jing)(jing)損害責(ze)(ze)任(ren)追究(jiu)辦(ban)法(fa)(試行(xing)(xing))》的(de)(de)有關規(gui)(gui)定處(chu)(chu)理。
(六)強化(hua)綜合能力保(bao)(bao)障(zhang)(zhang)。加強生態(tai)環境(jing)(jing)(jing)監(jian)(jian)測(ce)能力建設(she)是改革(ge)任(ren)務落到實處的(de)基礎保(bao)(bao)障(zhang)(zhang)。為此，《方(fang)案》明確提出要提升生態(tai)環境(jing)(jing)(jing)監(jian)(jian)測(ce)綜合能力，包括：研究制定環境(jing)(jing)(jing)監(jian)(jian)測(ce)機構(gou)編制標準，加強環境(jing)(jing)(jing)監(jian)(jian)測(ce)隊(dui)伍建設(she)，不(bu)斷(duan)提高監(jian)(jian)測(ce)人員綜合素質(zhi)和能力水平。完善與生態(tai)環境(jing)(jing)(jing)監(jian)(jian)測(ce)網絡發展(zhan)需(xu)求相適應的(de)財政(zheng)(zheng)保(bao)(bao)障(zhang)(zhang)機制，重(zhong)點(dian)加強環境(jing)(jing)(jing)監(jian)(jian)測(ce)基礎能力建設(she)，各級政(zheng)(zheng)府將(jiang)生態(tai)環境(jing)(jing)(jing)監(jian)(jian)測(ce)所(suo)需(xu)經費納入(ru)財政(zheng)(zheng)預算(suan)重(zhong)點(dian)保(bao)(bao)障(zhang)(zhang)。完善環境(jing)(jing)(jing)保(bao)(bao)護監(jian)(jian)測(ce)崗位津貼(tie)政(zheng)(zheng)策。
五(wu)、《方案》的(de)主要(yao)內容
《方(fang)案(an)》包括6個部分(fen)共20條(tiao)，3500余字(zi)。
引(yin)言部分鮮(xian)明地(di)體現(xian)問題導向，點出了當前(qian)生態(tai)環境監測網絡存在(zai)的突(tu)出問題和解決(jue)的必要性和緊迫性。
第一至三條是“總(zong)體要求”，主要明確(que)《方案》的(de)(de)指導思想、基本原則和主要目(mu)標。按(an)照明晰事權、落(luo)實(shi)責任，健全制度、統籌(chou)規劃，科學監(jian)測(ce)、創新驅(qu)動，綜合集成(cheng)、測(ce)管協同的(de)(de)原則，提出到2020年，初步建成(cheng)陸海統籌(chou)、天地(di)一體、上下協同、信息共享的(de)(de)生(sheng)(sheng)態(tai)(tai)環境(jing)監(jian)測(ce)網(wang)絡(luo)，使生(sheng)(sheng)態(tai)(tai)環境(jing)監(jian)測(ce)能力與生(sheng)(sheng)態(tai)(tai)文明建設要求相適(shi)應。
第四至十五條為(wei)《方案》的(de)任務措施部分(fen)，針(zhen)對當(dang)前(qian)生態環境(jing)監測(ce)網絡建設(she)存在的(de)突出(chu)問題，提出(chu)全(quan)面設(she)點(dian)、全(quan)國聯網、自(zi)動預警、依法追責(ze)等四個方面的(de)任務。其中：
第四至六條是針(zhen)對(dui)全(quan)面設點(dian)，提(ti)出了完(wan)善生(sheng)態(tai)環境監(jian)測(ce)網(wang)絡的有關任務(wu)。主要包括：建立統一的環境質(zhi)量監(jian)測(ce)網(wang)絡、健全(quan)重點(dian)污染源(yuan)監(jian)測(ce)制(zhi)度(du)、加強(qiang)生(sheng)態(tai)監(jian)測(ce)系統建設等(deng)三方面的監(jian)測(ce)網(wang)絡建設內容。
第(di)七至九條主要是針對全國聯網(wang)，提出要實現生態環(huan)境(jing)監(jian)測(ce)(ce)信息(xi)集成共(gong)享。主要包括：建立生態環(huan)境(jing)監(jian)測(ce)(ce)數(shu)據集成共(gong)享機(ji)制、構(gou)建生態環(huan)境(jing)監(jian)測(ce)(ce)大數(shu)據平(ping)臺、統一發布(bu)生態環(huan)境(jing)監(jian)測(ce)(ce)信息(xi)等三個層面的任務(wu)。
第(di)十(shi)至(zhi)十(shi)二條(tiao)主要(yao)是針對自動預警，要(yao)達到科學引(yin)導(dao)環(huan)境(jing)管理與風險防范(fan)的(de)目標。主要(yao)包括(kuo)：加(jia)強(qiang)環(huan)境(jing)質量監(jian)測預報(bao)預警、嚴密監(jian)控企業(ye)污染排放、提(ti)升生態(tai)環(huan)境(jing)風險監(jian)測評估與預警能(neng)力等三個方面(mian)的(de)措(cuo)施(shi)。
第十(shi)三(san)條(tiao)至十(shi)五條(tiao)是針對依(yi)法(fa)追(zhui)責，要(yao)建立生(sheng)態(tai)環(huan)(huan)境(jing)監(jian)測與監(jian)管(guan)聯動機制(zhi)。主要(yao)包括：為政府考核問責提供(gong)技(ji)術支撐、實現生(sheng)態(tai)環(huan)(huan)境(jing)監(jian)測與執(zhi)法(fa)同(tong)步(bu)、加強對各類生(sheng)態(tai)環(huan)(huan)境(jing)監(jian)測機構的監(jian)管(guan)等三(san)個方面的內容。
第(di)十六條至(zhi)二十條是為(wei)保(bao)證《方案》確定的任務順(shun)利實施(shi)，提出(chu)需建立健全(quan)的相關制度和保(bao)障(zhang)(zhang)體系(xi)(xi)。主要(yao)包括：健全(quan)生態(tai)環(huan)境(jing)監(jian)測法律法規及標準規范(fan)體系(xi)(xi)、明確生態(tai)環(huan)境(jing)監(jian)測事權、積(ji)極培育生態(tai)環(huan)境(jing)監(jian)測市場、強化監(jian)測科技(ji)創新能(neng)力、提升(sheng)生態(tai)監(jian)測綜合能(neng)力等(deng)五個方面保(bao)障(zhang)(zhang)措(cuo)施(shi)。
結尾部(bu)分(fen)主要(yao)強調了地方各級人民政府要(yao)加強對生態環境監測網絡建(jian)設改革的組織領(ling)導，制(zhi)定具(ju)體工(gong)作方案，明確職責(ze)分(fen)工(gong)，保(bao)證(zheng)各項改革任務落到(dao)實處(chu)。
六(liu)、認(ren)真做(zuo)好《方案(an)》的落(luo)實工(gong)作
國務院相關部(bu)(bu)門和(he)各級環保部(bu)(bu)門應高(gao)度重視生(sheng)態環境監測網絡(luo)建(jian)設工(gong)作，深(shen)入學習領會(hui)《方案》內容，認真落實《方案》提出(chu)的(de)目標任(ren)務，加快建(jian)成統一、完善、權(quan)威(wei)、高(gao)效的(de)生(sheng)態環境監測網絡(luo)，為(wei)建(jian)設生(sheng)態文明(ming)和(he)美麗中國提供(gong)堅(jian)強的(de)支撐(cheng)與保障。當前要重點從以下(xia)幾個方面著(zhu)手，抓(zhua)好《方案》的(de)落實工(gong)作：
(一)做好《方(fang)案》內(nei)容(rong)任(ren)務(wu)的(de)(de)分解工(gong)作。分別制定國務(wu)院相關部門(men)和(he)環保部內(nei)各司(si)局的(de)(de)任(ren)務(wu)分解表，將《方(fang)案》提(ti)出的(de)(de)任(ren)務(wu)逐條落(luo)實到責任(ren)部門(men)。
(二)制定(ding)《方(fang)案》實施計(ji)劃。根據《方(fang)案》提出的(de)目(mu)標任(ren)務，制定(ding)具體的(de)實施計(ji)劃(2016-2020年(nian))，確保如期完成任(ren)務，達到目(mu)標。
(三(san))明確劃分各級政府和企(qi)業環(huan)(huan)境監(jian)(jian)測(ce)(ce)(ce)事權。明確政府所屬監(jian)(jian)測(ce)(ce)(ce)機(ji)構主(zhu)要(yao)承擔(dan)環(huan)(huan)境質量(liang)監(jian)(jian)測(ce)(ce)(ce)、重點污染源監(jian)(jian)督(du)監(jian)(jian)測(ce)(ce)(ce)、環(huan)(huan)境執法(fa)監(jian)(jian)測(ce)(ce)(ce)、環(huan)(huan)境應急與(yu)預報預警等職能，其他服務性(xing)監(jian)(jian)測(ce)(ce)(ce)可向市場開放，由(you)社會監(jian)(jian)測(ce)(ce)(ce)機(ji)構承擔(dan)。中央政府根據(ju)事權劃分，建(jian)設并運行(xing)國家環(huan)(huan)境質量(liang)監(jian)(jian)測(ce)(ce)(ce)網;地方政府根據(ju)事權劃分，建(jian)設并運行(xing)地方環(huan)(huan)境質量(liang)監(jian)(jian)測(ce)(ce)(ce)網。排(pai)(pai)污企(qi)業要(yao)按照《環(huan)(huan)境保(bao)護法(fa)》要(yao)求(qiu)(qiu)嚴格落實污染排(pai)(pai)放自(zi)行(xing)監(jian)(jian)測(ce)(ce)(ce)及信息公(gong)開的主(zhu)體責(ze)任(ren)。國家和地方建(jian)立污染源監(jian)(jian)測(ce)(ce)(ce)數據(ju)共享與(yu)發布機(ji)制，重點排(pai)(pai)污單位要(yao)按照環(huan)(huan)保(bao)部門(men)要(yao)求(qiu)(qiu)將自(zi)行(xing)監(jian)(jian)測(ce)(ce)(ce)結果統(tong)一上(shang)傳(chuan)發布。
(四)建立統一的(de)(de)(de)環(huan)境監(jian)測(ce)技術規范和評價方法。對現有(you)的(de)(de)(de)大氣、水(shui)、土壤、生(sheng)態(tai)、近岸海域等監(jian)測(ce)技術規范進(jin)行(xing)現狀(zhuang)梳理、需求分析，列出需要修訂(ding)(ding)完善(shan)的(de)(de)(de)清單(dan)，抓緊開展修制訂(ding)(ding)工作，力爭(zheng)統一各有(you)關部門(men)的(de)(de)(de)環(huan)境監(jian)測(ce)標(biao)準(zhun)規范，努(nu)力推進(jin)各類環(huan)境監(jian)測(ce)機構的(de)(de)(de)監(jian)測(ce)活動執(zhi)行(xing)統一的(de)(de)(de)技術標(biao)準(zhun)規范。
(五)逐步健全環境(jing)監(jian)(jian)測(ce)法(fa)(fa)律法(fa)(fa)規(gui)。盡快出(chu)臺環境(jing)監(jian)(jian)測(ce)條例、國(guo)家環境(jing)質量(liang)監(jian)(jian)測(ce)網絡(luo)管理(li)辦法(fa)(fa)、國(guo)家環境(jing)監(jian)(jian)測(ce)信息(xi)發布管理(li)規(gui)定等法(fa)(fa)規(gui)、制度，使各項改(gai)(gai)革的舉措固化為法(fa)(fa)律和制度規(gui)定，使改(gai)(gai)革工作有法(fa)(fa)可依(yi)，有章可循，扎實推進。
(六)開(kai)展環境監(jian)測(ce)標準(zhun)化建設。會同(tong)中編辦開(kai)展環境監(jian)測(ce)機(ji)(ji)構標準(zhun)化建設工作，實現環境監(jian)測(ce)機(ji)(ji)構“四個規(gui)范(fan)”，即(ji)：規(gui)范(fan)單位屬(shu)性(xing)，明(ming)確(que)為公益性(xing)事業單位;規(gui)范(fan)職能定(ding)位，明(ming)確(que)各(ge)級監(jian)測(ce)機(ji)(ji)構的具體職能;規(gui)范(fan)編制(zhi)管理(li)，明(ming)確(que)編制(zhi)標準(zhun)和人員結構;規(gui)范(fan)經費(fei)保障，各(ge)級財(cai)政部(bu)門要充(chong)分保障人員和運(yun)行經費(fei)。
