生态文明体制改革总体方案（中英对照）

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.