保护好生命之源、生产之要、生态之基——落实最严格水资源管理制度 Protect the source of the life、Production to、Ecological base of the most strict implementation-water resources management system
 陈雷  Chen lei 

 

    水是生命之源、生产之要、生态之基。今年1月，国务院出台了《关于实行最严格水资源管理制度的意见》（以下简称《意见》），对实行最严格水资源管理制度作出了全面部署和具体安排，充分体现了中央对水资源管理的高度重视和坚定决心，标志着实行最严格水资源管理制度已经上升为国家战略，必将对我国水资源可持续利用和经济社会可持续发展起到巨大的推动作用，产生深远的历史影响。

    Water is the source of the life、Production to、Ecological base of。January，The state council issued a《About the strictest water resources management system opinion》（Hereinafter referred to as《opinion》），To implement the strict system of water resources management out the overall arrangements and the arrangements，Fully embodies the central to the attention of the water resources management and determination，Marks the strictest water resources management system has been increased to national strategy，Will our country to water resources sustainable utilization and sustainable economic and social development play a huge role，The history of the profound influence。

    一、深刻认识实行最严格水资源管理制度的重大意义     a、Profound understanding to the strictest water resources management system is of great significance

    随着工业化、城镇化快速发展和全球气候变化影响加大，我国水资源短缺、水污染严重、水生态环境恶化等问题日益突出，已成为制约经济社会可持续发展的主要瓶颈。这就要求我们下决心实行最严格水资源管理制度，像重视国家粮食安全一样重视水资源安全，像严格土地管理一样严格水资源管理，像抓好节能减排一样抓好节水工作。

    As industrialization、The rapid development of urbanization and the global climate change affects increase，The shortage of water resources in our country、Serious water pollution、Water ecological environment deterioration has become an increasingly important issue，Has become the main sustainable economic and social development of the main bottleneck。This requires we determined to implement the strict water resources management system，Like on national food security attention as water security，Just as strict as strict land management of water resources management，Like pay special attention to the energy conservation and emission reduction in water as pay special attention to the work。

    实行最严格水资源管理制度，是破除水资源瓶颈制约的根本途径。我国是世界上最大的发展中国家，也是水资源短缺的国家，发展需求与水资源条件之间的矛盾十分突出，节水是根本性出路。

    The strictest water resources management system，Break the bottleneck restriction of water resources is the basic way。China is the biggest developing country in the world，Also is the shortage of water resources of the country，Development needs and the contradiction between the water resources condition is very outstanding，Saving water is the fundamental way out。

    实行最严格水资源管理制度，是加快转变经济发展方式的战略举措。我国传统经济发展方式付出的代价过高，部分流域水资源开发利用已接近或超过水资源承载能力。转变经济发展方式，必须转变用水方式。

    The strictest water resources management system，Is to accelerate the transformation of the mode of economic development strategic measures。China's traditional mode of economic development costs were too high，Part of the river water resources development and utilization has come close to or more than the water resources carrying capacity。Transformation of the mode of economic development，Must change water way。

    实行最严格水资源管理制度，是保障国家粮食安全的关键环节。民以食为天，食以水为先。我国粮食连续多年增产增收之后，保障粮食安全的水利基础亟待巩固。我国人均耕地面积和耕地亩均水资源量只有世界平均水平的40%和50%，人增地减水缺的矛盾十分突出，加之一些地方农业用水粗放，农业受制于水的状况将长期存在。只有建设节水高效的现代农业，才能有力保障国家粮食安全。

    The strictest water resources management system，To ensure the national food security is a key link。The people，Feed water first。China's grain for many years after increasing income，To ensure food safety to consolidate the water conservancy basis。Our country and cultivated land area of cultivated land per capita water quantity MuJun only the world average of 40% and 50%，People to increase the contradiction of decrease water is very outstanding，Together with some local agricultural water extensive，Agricultural subject to the condition of the water long existence。Only the construction of high efficiency water saving modern agriculture，To guarantee the national food security。

    实行最严格水资源管理制度，是加快推进生态文明建设的迫切需要。长期以来，由于一些地方片面追求经济增长，对水资源和水环境缺乏有效保护，导致水生态环境持续恶化。只有从源头上扭转水生态环境恶化趋势，才能推动全社会走上生产发展、生活富裕、生态良好的文明发展道路。

    The strictest water resources management system，Is speeding up the construction of ecological civilization of urgent need。long，Due to some places only pursue economic growth，Water resources and water environment for lack of effective protection，Cause water ecological environment continued to worsen。Only from the source water reverse the trend of ecological environment deterioration，To promote the whole society to production development、Life rich、Good ecology civilization development road。

    

    二、准确把握实行最严格水资源管理制度的总体要求 two、Grasp strictly implement the overall requirements of water resources management system

    《意见》明确了实行最严格水资源管理制度的指导思想、基本原则、目标任务和重大举措，是指导当前和今后一个时期我国水资源工作的纲领性文件。

    《opinion》Clear the water resources management system strictly implement the guiding ideology、Basic principles、Target task and major step，Guidance is current and future a period of water resource in China programmatic document。

    指导思想。核心是围绕水资源配置、节约和保护“三个环节”，通过健全制度、落实责任、提高能力、强化监管“四项措施”，严格用水总量、用水效率、入河湖排污总量“三项控制”，加快节水型社会建设，促进水资源可持续利用和经济发展方式转变，推动经济社会发展与水资源水环境承载能力相协调。

    Guiding ideology。The core is the water resources allocation around、Save and protect“Three links”，Through the perfect system、Carries out the responsibility、Improve ability、Strengthen supervision“Four measures”，Strict total water、Water use efficiency、Of the total pollutant amount“Three control”，To speed up the water-saving society construction，Promote the sustainable utilization of water resources and economic development mode change，Promote social and economic development and the water resources carrying capacity of water environment in coordination。

    基本原则。一要坚持以人为本，着力解决人民群众最关心最直接最现实的水资源问题，保障饮水安全、供水安全和生态安全，这是实行最严格水资源管理制度的出发点和落脚点；二要坚持人水和谐，尊重自然和经济社会发展规律，处理好水资源开发与保护关系，以水定需、量水而行、因水制宜，这是实行最严格水资源管理制度的核心理念；三要坚持统筹兼顾，协调好生活、生产和生态用水，协调好上下游、左右岸、干支流、地表水和地下水关系，这是实行最严格水资源管理制度的内在要求；四要坚持改革创新，完善水资源管理体制和机制，改进管理方式和方法，这是实行最严格水资源管理制度的根本保障；五要坚持因地制宜，实行分类指导，注重制度实施的可行性和有效性，这是实行最严格水资源管理制度的有效途径。

    Basic principles。One should insist on，Strive to resolve of greatest concern to the people most directly the most realistic problems of water，Guarantee the safety of drinking water、Water supply and ecological security，This is the strictest water resources management system of the starting point and the foothold；Second, we need to adhere to the water harmony，Respect for nature and the economic society development rule，To deal with the relationship between the development and protection of water resources，With water to set、Water quantity and do、Because of the specific water，This is the strictest water resources management system of the core concept；Third, we will adhere to the overall consideration，Coordinate life、Production and ecological water use，Coordinate upstream and downstream、ZuoYouAn、separately、Relationship between surface water and groundwater，This is the strictest the inherent requirement of the water resources management system；The fourth is to adhere to reform and innovation，Improve water management system and mechanism，Improving the management way and method，This is the strictest water resources management system of the fundamental guarantee；Five stick to adjust measures to local conditions，Implements classified guidance，Pay attention to the implementation of the system is feasible and effective，This is the strictest water resources management system in an effective way。

    主要目标。在水资源开发利用控制方面，按照保障合理用水需求、适度从紧控制的原则，在强化节水的前提下，提出到2030年全国用水高峰时用水总量控制在7000亿立方米以内；在用水效率控制方面，按照高效用水、经济合理、技术可行的原则，提出到2030年用水效率达到或接近世界先进水平，万元工业增加值用水量降低到40立方米以下，农田灌溉水有效利用系数提高到0.6以上；在水功能区限制纳污方面，到2030年全国主要污染物入河湖总量控制在水功能区纳污能力范围之内，水功能区水质达标率提高到95%以上。为实现上述目标，《意见》还进一步明确了2015年和2020年水资源管理的阶段性目标。这些目标既充分体现了约束性，又充分考虑了可行性，通过努力是完全可以实现的。

    The main goal。In the water resources development and utilization control，According to ensure reasonable water demands、The moderately tight control principle，In strengthening the premise of water saving，Puts forward to 2030 national water peak in 700 billion cubic meters of water amount control within；Water use efficiency in control，According to the efficient water use、Economic and reasonable、Technology feasible，Puts forward to 2030 water use efficiency at or near the world advanced level，Ten thousand yuan industrial added value reduced to 40 cubic meters of water below，The effective utilization coefficients in irrigation water increased to more than 0.6；In the water, and limit function area，By 2030 the major pollutants into the rivers in water, total amount control function within the scope of carrying capacity，Water function area increased from 95% to above the water quality success rate。To achieve the goal，《opinion》Also make clear further in 2015 and the phases of water resources management goals。These targets are fully embodies the binding，And the full consideration of the feasibility，Through the effort is completely realized。

    重大举措。一是加强水资源开发利用控制红线管理，严格规划管理、水资源论证、水量分配、取水许可和水资源有偿使用制度，促进水资源可持续利用；二是加强用水效率控制红线管理，通过全面节水、定额管理、理顺水价和节水技术改造，推进节水型社会建设；三是加强水功能区限制纳污红线管理，严格水功能区监督管理和饮用水水源保护，推进水生态系统保护和修复，改善水环境质量；四是落实严格水资源管理的责任考核、计量监控、管理体制、投入机制、政策法规等保障措施，推动最严格水资源管理制度落到实处。同时，为充分发挥红线的约束作用，《意见》明确了取水许可和入河湖排污口限批、地下水禁采限采等一系列刚性要求和禁止性规定，极大地提高了最严格水资源管理制度的约束力、执行力和威慑力。

    Major move。One is to strengthen the water resources development and utilization control red line management，Strict planning management、Water resources argumentation、Water distribution、Water intake permission and the system of paid use of water resources，Promote the sustainable utilization of water resources；Two is to improve water use efficiency in the red line management control，Through the comprehensive water saving、Quota management、Straighten out water price and water saving technology transformation，Promote water-saving society construction；Three is to strengthen water restrictions on the red line management and function，Strict supervision and management and water function area drinking water sources protection，Promote water ecological system protection and restoration，Improve water environment quality；Four is strictly implement the responsibility of water resources management review、Measurement monitor、Management system、Input mechanism、Policy and regulations and so on security measures，Promote the most strict water resources management system implemented。At the same time，The red line into full play the constraints of the role，《opinion》Clear the water intake permission and into the rivers of drainage outlet limit、Groundwater exploitation prohibition in limited, a series of rigid requirements and prohibitions，Greatly improve the strict management system of the water resource binding upon both parties、Execution and powerfully。

    

    三、真抓实干推动最严格水资源管理制度落到实处 three、The most strict water resources management to promote do solid work system into practice

    制度的生命力在于实施。当前，实行最严格水资源管理制度的当务之急是狠抓落实，在强化制度执行上下功夫、在严格红线约束上动真格、在促进水资源可持续利用上见成效。

    The vitality of the system is implemented。The current，Strictly implement the system of water resources management priority now is to guarantee the implementation，In strengthening institutions executive fluctuation kongfu、The red line in strict constraints bids、In promoting the sustainable utilization of water resources in see results。

    一要抓紧分解“三条红线”控制指标。加快分解落实水资源开发利用控制、用水效率控制、水功能区限制纳污“三条红线”控制指标，尽快建立覆盖流域和省市县三级行政区域的红线控制指标体系。加快制定主要江河流域水量分配方案，力争用5年时间基本完成全国主要跨省江河水量分配工作。加快制定高耗水工业和服务业用水定额国家标准，抓紧修订完善区域用水定额标准，提高用水定额的先进性、约束性和实用性。依据《全国重要江河湖泊水功能区划》和各省区水功能区划，抓紧对水功能区水域纳污能力进行复核，提出各流域区域水功能区限制排污总量意见。

    A seize decomposition“Three red line”Control index。To speed up the decomposition implement water resources development and utilization control、Water use efficiency control、Water restrictions and function as“Three red line”Control index，Set up as soon as possible and provinces and cities covered valley county level 3 administrative region of the red line control index system。To speed up the main river basin water distribution for solutions，Strive to five years to complete the basic spanning provinces main rivers water distribution work。To speed up the high water for industrial and service water quota national standards，Grasp revising perfect regional water quota standards，Improve water complement of advanced nature、Binding and practical。According to《The national important rivers and lakes water function division》And every province water function division，To function as water to water carrying capacity for review，The proposed regional water basin function limit pollution gross opinion。

    二要着力强化水资源统一调度。按照兴利服从防洪、区域服从流域、电调服从水调的原则，制订完善主要江河水资源调度方案、应急调度预案和调度计划，全面实施水资源统一调度。认真组织开展河北山西向北京调水、引黄济津济冀济淀等水量应急调度工作，确保重要城市、重点地区供水安全与生态安全。加强水利工程联合调度特别是梯级水库群联合调度，合理确定不同水利工程蓄泄过程，最大程度发挥水利工程的综合调配作用。

    Second, we need to focus on strengthening water resources regulation。According to benefit to flood control、Area to obey the basin、The electricity to the principle of the water，Make perfect main JiangHeShui resources scheduling solution、Emergency scheduling plan and scheduling plan，The full implementation of the unified dispatching water resources。Seriously, the organization carries out the hebei shanxi water to Beijing、The tianjin economic JiJi which has Yellow River diversion of water dispatching work such as emergency，Make sure the important city、The safe supply of key areas and ecological safety。Strengthen water conservancy project united operation especially united operation of cascade reservoirs，Reasonable different storage and discharge water conservancy project process，Maximizing the water conservancy project mix role。

    三要全面加强水资源开发利用管理。严格规划管理、建设项目水资源论证和取水许可审批，加快开展国民经济和社会发展规划、城市总体规划、重大建设项目布局等水资源论证，严格控制水资源短缺地区、生态脆弱地区发展高耗水项目。严格实行地下水取用水总量控制和水位控制，尽快核定并公布地下水禁采和限采范围，编制实施南水北调东中线受水区、地面沉降区、海水入侵区地下水压采方案，逐步实现地下水采补平衡。

    Third, we need to strengthen the management of water resources development and utilization。Strict planning management、Water resources argumentation and water intake permission for examination and approval，To speed up the carry out plans for national economic and social development、City planning、The major construction projects layout water resources argumentation, etc，Strict control in the shortage of water resources、Ecological fragile areas develop high water project。Strictly implement the groundwater take total control water and level control，The released as soon as possible and groundwater exploitation prohibition and limited scope of mining，Implementation of the south-to-north water transfer project receiving line、Subsidence zone、Seawater intrusion underground water pressure area in scheme，Gradually realize in groundwater dynamic balance。

    四要全面加快节水防污型社会建设。实施全国“十二五”节水型社会建设规划，强化用水定额和用水计划管理，严格落实节水“三同时”制度，制定实施节水强制性标准，大力推行清洁生产和节水技术改造，积极发展污水处理、中水回用、雨水、海水等非常规水源开发利用。综合运用产业政策、财税政策、价格杠杆等手段建立节水激励机制。加快建立和完善国家水权制度，积极培育水市场，鼓励水权转让，运用市场机制合理配置水资源。

    The fourth is to speed up the construction of water saving FangWuXing comprehensive society。The implementation of national“1025”Water-saving society construction planning，Strengthen water norm and water program management，Strictly implement water saving“3 at the same time”system，Implementation of the water saving mandatory standards，Vigorously promote clean production and water saving technology transformation，Actively developing the sewage treatment、Water reuse、The rain、The development and utilization of water and unconventional。Comprehensive industrial policies、Finance and tax policy、Such means as price lever establish water-saving incentive mechanism。Establish and perfect the water right system，Actively cultivate the water market，Encourage the water rights transfer，Using the market mechanism reasonable allocation of water resources。

    五要加快江河湖库水系连通工程建设。综合采取调水引流、清淤疏浚、生态修复等措施，科学合理建设河湖水系连通工程，加快构建引排顺畅、蓄泄得当、丰枯调剂、多源互补、调控自如的江河湖库水网体系。加快大中型水库和西南重点水源工程建设，积极推进一批跨流域、跨区域调水工程，因地制宜建设城市应急备用水源。加快推进南水北调东中线一期工程及配套工程建设，加快南水北调西线工程前期工作，抓紧研究健全后续管理体制机制，确保工程如期通水并持续发挥效益。

    Five to speed up the river lake water system connecting engineering library construction。Comprehensive take water drainage、Bait-casting dredging、Ecological restoration and other measures，Scientific and reasonable construction of water system connecting project，Accelerate the establishment of a lead row smoothly、Proper storage and discharge、Abundant withered to adjust、Multiple source complementary、Regulation of the lake water channel rivers freely library system。To speed up the large and medium-sized reservoirs and southwest key water project construction，Actively promote a batch of cross river basin、Cross area to water transfer project，Construction of urban emergency standby water adjust measures to local conditions。Speed up the east Central Line a phase of the project of south-to-north water transfer project and supporting the project construction，To speed up the west-line project of south-to-north water transfer project of the early work，We will improve the follow-up mechanism of system management，Ensure project duly out water and continue to benefit。

    六要切实加强水资源保护和水生态修复。加强水功能区和入河湖排污口的监督管理，建立水功能区水质达标评价体系，实施入河湖排污总量的动态监控，建立取水许可和排污口设置管理联动机制，进一步强化水质管理。加快完善饮用水水源地核准和安全评估制度，深入开展重要饮用水水源地安全保障达标建设，强化饮用水水源地应急管理。加强重要生态保护区、水源涵养区、江河源头区和湿地的保护，推进生态脆弱河流和地区水生态修复，开展水生态保护示范区建设，定期组织开展全国重要河湖健康评估。

    Sixth, we need to strengthen the protection of water resources and water ecological restoration。Strengthen the function of water and drainage outlet in the supervision and management，Establishing water function area water quality standard evaluation system，The implementation of the pollution gross dynamic monitoring，Establish water intake permission and the drainage outlet setting management linkage mechanism，To further enhance the water quality management。To speed up the perfect water source of drinking water safety approval and evaluation system，Carry out in-depth important source of drinking water safety standard construction，Strengthen the drinking water source emergency management。Strengthen the important ecological reserve、Etm data、The rivers source area and wetland protection，Promote ecological fragile in the rivers and water ecological restoration，Carry out water ecological protection demonstration area construction，Organize regular develop in the national important rivers health assessment。

    七要大力推进水资源管理法制化进程。进一步完善水资源规划体系，强化规划的执行和监督检查，加快节约用水、地下水管理、水资源论证等方面立法工作，为严格水资源管理提供规划依据和法律保障。细化实化最严格水资源管理各项制度，确保水资源开发利用和节约保护各项工作有章可循、有规可依。会同有关部门尽快出台最严格水资源管理制度考核办法、责任追究办法，建立水资源领域重大违法违规问题行政问责制度。

    Seven to water resources management to promote legalization。To further improve the water resource planning system，Strengthen the implementation of the planning and supervision and inspection，Speed up to save water、Groundwater management、Water resources argumentation legislation, etc，For the strict management of water resources to provide planning basis and legal protection。Refining the most strict visualize the water resources management system，Ensure that water resources development and utilization and save all work of the protection of rising、According to perform。In conjunction with the relevant department as soon as the most strict management system on water resources assessment method、Accountability measures，Establish water market grave violations of problem administration accountability system。

    八要强化水资源监控能力和科技支撑。以国家水资源监控能力项目建设为重点，加强省界等重要控制断面、水功能区和地下水的水质水量监测能力建设，完善取水、排水、入河湖排污口计量监控设施，逐步建立中央、流域和地方水资源监控管理平台，全面提高水资源监控、预警和管理能力。深入开展水资源领域重大问题研究和关键技术研发和推广，全面提高水资源管理的科技水平。

    BaYao strengthening water resources monitoring ability and scientific support。With the national water resources project monitoring ability construction as the key point，Strengthen and other important control within the section、Water function areas and the groundwater water monitoring ability construction，Perfect water、drainage、The drainage outlet of measuring monitoring facilities，Gradually establish a central、River basin and local water resources monitoring management platform，Improve water resources monitoring、Early warning and management ability。Carry out in-depth field research and water resources major issues key technology research and development and promotion，Improve water management science and technology。

    九要不断创新水资源管理体制和机制。继续深化水务管理体制改革，实现城乡涉水事务一体化管理。健全流域管理与行政区域管理相结合的水资源管理体制，明确流域与区域管理事权划分，积极搭建流域水事协商与协调平台，进一步完善水资源保护和水污染防治协调机制。加快推进水价改革，完善水价形成机制，合理制定征费标准，促进水资源节约与保护。

    Nine to continuous innovation water resources management system and mechanism。Continue to deepen the reform of the management system of water，Wade through the integrated management realize urban and rural affairs。Perfect river basin management and administrative areas with the combination of management of water resource management system，Clear river basin and regional management division powers，Actively build water basin of negotiation and coordination platform，To further improve the water resources protection and prevention and control of water pollution coordination mechanism。Speed up the reform of water，Perfect water price forming mechanism，Establishing a reasonable fees standard，Promote saving and protection of water resources。

    十要广泛凝聚水资源管理工作合力。实行最严格水资源管理制度，需要全社会共同努力。各级水利部门要切实增强责任感和使命感，认真履职，敢抓严管；主动当好党委政府参谋，加强与有关部门的协调配合；广泛深入开展基本水情宣传教育，为制度实施营造良好氛围。 （作者：水利部部长）　

    Ten to widely condensed water resources management work together。The strictest water resources management system，Need all the social work together。Water conservancy departments at all levels must strengthen the sense of responsibility and the sense of mission，Seriously bred，Dare to grasp shall；Active when good party committees and governments of staff officer，To strengthen the coordination with other related departments；Extensive propaganda education in basic water，For system implementation create a favorable atmosphere。 （The author：Minister of water）