污染物总量控制制度创新与未来发展的思考

为解决污染物总量控制制度创新及与排污许可制的关系，探索我国未来水环境总量控制制度的发展方向，对美国、欧盟等发达国家和地区以及我国水污染控制的发展历程进行了回顾和对比研究.结果表明:①控制污染物排放总量是改善水环境质量的根本措施，排污许可制是水环境管理的核心手段.②我国水污染总量控制研究起始于20世纪70年代末的容量总量控制研究，先后经历了理论探索、应用探索和理论深化3个阶段，在管理上则经历了排污许可制试行阶段、制度探索阶段、总量控制目标责任制阶段.③我国目前实施的总量控制仍然是目标总量控制，难以与地表水质直接挂钩.对我国水环境保护形势和相关法律政策的研究表明，我国从污染源达标排放控制1.0时代、目标总量控制2.0时代，逐步进入容量总量控制3.0时代的条件已基本成熟.建议以排污许可制作为推进总量控制3.0的重要抓手，完善相关制度建设，严格问责机制，确保容量总量控制的真正落实. 

Innovation and Future Development of Total Pollutant Load Control System in China

In order to clarify the relationship between the technical innovation in the total pollutant load control and the discharge permits, and to explore the future development of the total water pollutant load control in China, we reviewed and compared the historical development of water pollution control in the USA, EU, and China. The analysis shows that:(1) The total discharge load control is the fundamental measure to improve the water environment quality, and the discharge permit system is the core means in the water environment management. (2) The researches on the total water pollutant load control in China began with environmental capacity research in the late 1970s, and experienced three stages, i.e., theoretical exploration, application exploration and theoretical deepening; and the management practice experienced the discharge permit trial implementation, management system exploration, and the accountability system of the total pollutant load control. (3) So far, the target control of the total pollutant load is still the major water environmental management means, which is not directly related to the water quality target. The analysis of the water environmental protection and the relevant legislation and policy in China indicates that it is mature condition to turn to the total capacity control, i.e. the total pollutant load control version 3.0 from the previous discharge standards control version 1.0 and the total load target control version 2.0. It is recommended that the discharge permit system play the vital role to carry on the total pollutant load control version 3.0, and meanwhile to improve the system and legislation building, to strengthen accountability, so as to ensure the total capacity control to be really implemented.