Publication date: 20 10/8/8
Blue sky and white clouds, fresh air, birds and flowers, good weather, beautiful mountains and rivers and a more livable environment are the hopes of all mankind for the new century.
However, standing on the threshold of the new century, the national environmental situation is still quite grim, the total discharge of various pollutants is very large, the pollution level is still at a fairly high level, the trend of ecological deterioration has not been effectively curbed, and the process of ecological destruction in some areas is still intensifying.
Water pollution is prominent. Organic pollution is widespread in major rivers in China, among which Liaohe and Haihe rivers are seriously polluted, Huaihe River is poor in water quality, and Yellow River is not optimistic. Major freshwater lakes are seriously eutrophic, and most cities are underground-
Water is polluted to a certain extent, and it is increasing year by year. It is worth noting that the total discharge of industrial and urban domestic sewage in China last year was 406,543.8+billion tons, of which domestic sewage discharge reached 20.4 billion tons, surpassing industrial sewage for the first time.
The atmospheric environment is deteriorating. According to the statistics of relevant departments, only 33. 1% of the 338 cities in China have reached the second-class national air quality standard, and the remaining 66.9% have exceeded the second-class standard, of which 137 have exceeded the third-class standard, accounting for 40.5% of the statistical cities.
Most grasslands have been or are being degraded. Due to the predatory development, indiscriminate cultivation and deforestation, and long-term overload and overgrazing of grasslands, the grassland area in China is decreasing year by year, and the grassland quality is gradually declining. At present, most grasslands in China have been or are being degraded, of which the grassland with moderate degradation degree is 65.438+0.3 billion hectares, and it is increasing at the rate of 20,000 square kilometers per year. The area of soil erosion in China has reached 3.67 million square kilometers, and it is increasing at the rate of 6.5438+0 million square kilometers per year. The area of desertified land in China has reached 2.62 million square kilometers, and it continues to expand at the rate of 2,460 square kilometers per year. At present, the area of desertified land in China is 6.5438+0.689 million square kilometers, accounting for 654.38+0.76% of the country's land area, forming a sandstorm belt that starts from Tarim Basin in the west and reaches the west of Songnen Plain in the east, with a length of 4,500 kilometers from east to west and a width of 600 kilometers from north to south. The deterioration of agricultural ecology will directly weaken the sustainable capacity of agricultural production in China.
The marine environment is also worrying. 1999 China's coastal waters were seriously polluted, with Class IV and IV seawater reaching more than 46%. Among them, the proportion of the four types of seawater in the most polluted East China Sea is as high as 53%.
It is worth noting that the pollution of industrial "three wastes" to agricultural environment in China is spreading from local to whole. The area of farmland occupied and destroyed by solid waste storage in China has reached more than 2 million mu, and more than 80 million mu of farmland has suffered from different degrees of air pollution. The farmland loss caused by air pollution in Huaihe River basin alone reached 654.38+0.7 billion yuan. Sewage irrigation area accounts for 7.3% of the total irrigation area in China, which is 1.6 times higher than that in 1980s. The area of farmland polluted by pesticides in different degrees has reached 65.438+0.4 billion mu.
Environmental pollution affects not only economic development, but also social progress. The development history of all countries in the world shows that our blind pursuit of nature, blind conquest and quick success have led to the intensification of the atmospheric "greenhouse effect", the destruction of the atmospheric ozone layer, acid rain becoming the "death in the air", toxic chemicals entering the environmental cycle, garbage flooding and so on. , causing irreparable ecological disasters to human beings and nature, affecting our progress towards a civilized and clean modern society. Due to the destruction of ecology, the health of agriculture, industry and people in some areas of our country is being seriously threatened, which not only restricts social progress, but also affects the sustainable development of the national economy.
The living environment lights up with a red light, and the resource status frequently gives an alarm. The population is growing rapidly, resources are overexploited, the environment is seriously damaged, farmland, pasture, forest and fishery are overexploited ... In the face of unprecedented ecological crisis, we should establish a strong sense of historical responsibility, take the future development of mankind as the premise and the sustainable development of future generations as the starting point, and carry out comprehensive thinking and action.
Standing on the threshold of the new century, we seem to hear the cry of "rejuvenating China" that spans a hundred years of history. Only when we face up to the crisis, face up to the challenges, be brave after knowing the shame and work harder can we be worthy of the new century and create greater glory for the Chinese nation.
Second, comprehensive decision on environment and development.
Comprehensive decision-making on environment and development is an important part of China's environmental policy, which has attracted much attention in recent years. China's "Agenda 2 1 Century" puts forward "to reform the system, establish a comprehensive decision-making mechanism conducive to sustainable development, make all departments coordinate their actions, and establish a new organization and coordination mechanism when necessary to ensure the smooth realization of the strategic objectives of sustainable development". 1996 The Fourth National Conference on Environmental Protection listed the implementation of comprehensive decision-making on environment and development as the first of six tasks of "creating a new situation in environmental protection", and demanded "accelerating the establishment of comprehensive decision-making mechanism on environment and development, and gradually standardizing and legalizing it". At the same time, all provinces and cities are actively promoting comprehensive decision-making. Jiangsu Provincial Committee made the Decision on Strengthening the Comprehensive Decision on Environment and Development with 1999, and Shandong, Hebei and other provinces are also issuing relevant documents. It can be seen that comprehensive decision-making, as one of the policy means to fundamentally solve environmental problems, plays an important role in environmental policy. Based on reality, this paper tries to put forward the basic framework of comprehensive decision-making from the theoretical point of view, and provide reference for further formulating the implementation mechanism of comprehensive decision-making. The framework includes the basic principles, subjects, hierarchical structure and operation mode of comprehensive decision-making.
Basic principles of decision-making
Comprehensive decision-making on environment and development, also known as "comprehensive decision-making on environment and economy", refers to a decision-making method that integrates environmental factors into the whole process of economic development decision-making in national and local decision-making departments and their decision-making processes, and fundamentally solves the phenomenon of separation of economic decision-making and environmental consequences. Its basic principles are as follows:
First, the principle of generating new benefits. The comprehensive decision-making of environment and development is mainly reflected in its "comprehensive" characteristics, which considers more factors than single or single decision-making. It is precisely because the purpose of comprehensive decision-making is to overcome the environmental damage caused by separation decision-making, it is naturally required to retain environmental benefits when implementing comprehensive decision-making, which is a new benefit compared with separation decision-making. On the other hand, if a decision-making process can't produce due benefits in environmental protection, then it doesn't follow this basic principle and can't be regarded as a successful "comprehensive decision". In addition, the newly added benefits are not necessarily environmental benefits. In the comprehensive decision-making, we should also improve the efficiency of economic development and achieve a win-win situation, which is a more comprehensive "comprehensive decision-making".
Second, the principle of moderate decision-making cost can also be called the principle of decision-making efficiency, that is, the extra cost caused by the increase of comprehensive process must be controlled within an acceptable and reasonable range. The higher the comprehensive degree of decision-making, the more complicated the formulation process, and the more the cost in time, manpower and financial resources. In this sense, comprehensive decision-making has a reasonable limit, not the bigger the better. We should not only decide the scale of comprehensive decision-making according to needs, but also consider the problem according to the principle of economy. In line with this principle, when we consider the theoretical framework of comprehensive decision-making, we can comprehensively consider it, while when we implement it, we should classify it according to the situation and choose from a limited category.
Third, the principle of diversity and representativeness of decision-making participants. Although the scale of comprehensive decision-making may not be large, the representativeness and diversity of the subjects involved in comprehensive decision-making should be guaranteed, otherwise its comprehensive characteristics and original intention of comprehensive decision-making will not be easy to achieve. In this regard, hierarchical arrangements can also be made. For example, in a comprehensive decision-making system, there can be a core layer, an extension layer and a peripheral layer, so that the subjects with different degrees of relevance to the comprehensive decision-making of environment and development can be determined in appropriate positions, and different levels of representation can be considered on different issues. For those basic decision-making rules, long-term policies and other issues, the decision can be as broad as possible, while for some thematic and professional decision-making issues, it can be decided by the core layer with narrow representation.
Decision subject
According to China's actual situation, the comprehensive decision on environment and development can include the following topics:
State (central government): Here, the central government is the representative of national interests. In the comprehensive decision-making of environment and development, the central government is the most important decision-making subject, and its importance mainly comes from its power and authority. Because of this, its position in comprehensive decision-making is not the same as other disciplines. As an authority representing the interests of the country and society, it supports and advocates the comprehensive decision-making of environment and development, because this decision-making process is conducive to the balance of interests of the whole society.
Evaluate the service consciousness; The production party branch focuses on honesty and law-abiding, exemplary implementation, enhances the awareness of safety in production, studies hard, improves skills, and conducts evaluation. Party member carried out criticism and self-criticism in strengthening party member's party spirit cultivation and improving party member's ideological and political quality, effectively strengthened ideological construction, organizational construction and work style construction, and enhanced the fighting capacity and cohesion of party organizations. In the process of appraisal, the Party Committee actively participated in supervision and guidance, found problems and solved them in time, thus ensuring the quality of appraisal work.
Government functional departments: government functional departments are the main bodies that play a substantial role in comprehensive decision-making, mainly referring to the actual representatives of the "government" in various functions and holding important decision-making power. In fact, government decisions are provided by various departments, and it is this basis that has a great influence on the final decision. Therefore, the comprehensive decision-making among government departments is the most critical level in the comprehensive decision-making of environment and development. From two specific angles of comprehensive decision-making on environment and development-considering economic policy from environmental perspective and environmental policy from economic perspective-the functions of comprehensive planning, economic management, centralized departments and professional departments are the most important, and their mutual coordination and * * * actions are the core links of comprehensive decision-making. In this sense, what people usually call "comprehensive decision-making" mainly refers to various departments of the government.
Local government: As one of the subjects of comprehensive decision-making on environment and development, local government is determined by its independent interest subject status. Under the market economy, local governments not only have independent economic interests, but also have independent or relatively independent environmental interests. Local governments' concern for the environment is always inevitable, which will be reflected in their decision-making process. When the local government participates in the national decision-making process as a part of the country, it will contribute to the comprehensive decision-making of environment and development at the national level. The view that national decision-making is made by the central government and local governments only need to implement it seriously is not the real meaning of comprehensive decision-making. Judging from the actual process, the degree of attention and implementation of local governments' comprehensive decision-making on environment and development is indeed related to the local development level, and some comprehensive decision-making behaviors occur because of the requirements from above.
Industry and commerce: As a group with obvious interests, industry and commerce have an important influence on the comprehensive decision-making of environment and development, which is largely determined by its position as a "social pillar". The strength of industrial and commercial departments in comprehensive decision-making comes from their economic strength and the resulting social impact. Because the industry itself is not only the carrier of interests and values, but also has great positive and external effects on society (such as providing jobs), if it lacks the opinions of the industry in the comprehensive decision-making of environment and development, it will be imperfect and hide risks. In China, the interests and opinions of the industrial and commercial departments are often represented by the industrial management departments in the government. However, with the development of market economy, the interests of industries independent of the government are getting bigger and bigger, and it is no longer suitable for the new situation to be completely represented by government departments. At this time, the industry needs to have its own independent expression channels. Industry and commerce can be said to be the social entity with the closest relationship with environmental protection. Their participation in the comprehensive decision-making of environment and development can not only enhance the representativeness of the comprehensive decision-making, but also pave the way for its implementation. The understanding and practice of taking enterprises or industries as the object of environmental management without providing them with the necessary channels to participate in decision-making is not conducive to the formulation and implementation of comprehensive decision-making, nor is it easy to achieve the purpose of environmental management.
Scientific research and academia: in the comprehensive decision-making of environment and development, the role of scientific research and academia is different from that of other participants. On the whole, the scientific research academia does not appear as an independent interest party, but as an objective and fair observation force. Its task is to clarify the relevant scientific principles in comprehensive decision-making, provide empirical observation results of reality and put forward suggestions based on science. If we look at the field of scientific research from this perspective, their characteristics transcend the interest level and provide objective basis for comprehensive decision-making. Because science is actually a collection of knowledge about nature and society accumulated by human beings, the role of scientific community in the comprehensive decision-making of environment and development is indispensable-it makes people's decisions based on all human knowledge (rather than a small amount of information at present), thus avoiding the decision-making process and decision-making repetition that has been proved to be incorrect in history. People emphasize the scientific and democratic decision-making because a large amount of accumulated knowledge wealth can be incorporated into the scientific process. In comprehensive decision-making, science refers to both natural science and social science, and of course includes humanistic knowledge. Here, it is particularly necessary to emphasize the role of social science.
Non-governmental organization: Non-governmental organization is a concept with certain connotation, which refers to those social groups that engage in non-profit activities with certain social welfare goals as their purpose. Usually, environmental protection is an area where NGOs are concentrated. Because NGOs are organizations committed to social goals, they are very active in actions related to their goals. In the comprehensive decision-making of environment and development, the role of non-governmental organizations is unique and beneficial, because as these organizations with specific goals and working in relatively narrow fields, they often accumulate some special knowledge, such as associations for protecting wild animals, organizations for protecting wetlands, and foundations specializing in operating environmental protection funds. Their knowledge and information in these special fields are rich and detailed, and some of them are unique, which plays a special role in improving the comprehensive decision-making level of environment and development. It is undeniable that non-governmental organizations have their own special interests or represent the interests of a special group in the social class, but this does not deny that sometimes it only strengthens their reasons for participating in comprehensive decision-making. In comprehensive decision-making, the requirements for non-governmental organizations generally cannot be equal to those for government organizations and scientific academic circles, because the latter two have to go beyond the consideration of interests, while non-governmental organizations do not. There is a vague view that the participation of non-governmental organizations in environmental and development affairs and comprehensive decision-making is mainly common in developed countries, but lacking in developing countries. In fact, this is not comprehensive. In many underdeveloped developing countries (such as African countries). ), there are also many non-governmental environmental protection organizations, which are also very active and have a certain impact on the local development decision-making process. In recent years, non-governmental environmental protection organizations have also developed in China. At present, their main activities are through self-organizing activities and news media, but it can be predicted that their participation in formal comprehensive decision-making will accelerate in the future.