【谷騰環保網訊】城市減污降碳(tan)(tan)協(xie)同增效(xiao)是(shi)以(yi)建設人(ren)與自然和諧共生的美麗城市為總體目標，以(yi)加(jia)強制度創新(xin)與技術(shu)支(zhi)撐為重要保障，以(yi)較低成本、更(geng)高效(xiao)率實現降碳(tan)(tan)、減污、擴綠、增長協(xie)同推(tui)進。

2022年(nian)6月，生(sheng)態環境部(bu)等7部(bu)門(men)聯合印(yin)發《減(jian)污(wu)降(jiang)(jiang)(jiang)碳(tan)協(xie)同(tong)增(zeng)效實施方(fang)案》，要求“開展重點城(cheng)市、產業園區、重點企業減(jian)污(wu)降(jiang)(jiang)(jiang)碳(tan)協(xie)同(tong)度評價(jia)(jia)研究”，提出“減(jian)污(wu)降(jiang)(jiang)(jiang)碳(tan)協(xie)同(tong)度有(you)效提升”的目標。2023年(nian)7月，生(sheng)態環境部(bu)發布《城(cheng)市和產業園區減(jian)污(wu)降(jiang)(jiang)(jiang)碳(tan)協(xie)同(tong)創新(xin)試點工(gong)作方(fang)案》。鑒于此(ci)，筆(bi)者認為，亟須研究構建城(cheng)市減(jian)污(wu)降(jiang)(jiang)(jiang)碳(tan)協(xie)同(tong)度評價(jia)(jia)辦(ban)法，對城(cheng)市減(jian)污(wu)降(jiang)(jiang)(jiang)碳(tan)協(xie)同(tong)創新(xin)試點開展效果評價(jia)(jia)，充分發揮評價(jia)(jia)機制的“指揮棒(bang)”作用(yong)，助力城(cheng)市減(jian)污(wu)降(jiang)(jiang)(jiang)碳(tan)協(xie)同(tong)度有(you)效提升。

城市減污降碳協同度的概念與內涵

城(cheng)市(shi)減污降(jiang)碳協(xie)同(tong)創新(xin)試點的(de)(de)核(he)心任務是推動(dong)管理模式創新(xin)，體現了(le)運用協(xie)同(tong)理論指導(dao)實(shi)踐的(de)(de)能力，旨在推動(dong)城(cheng)市(shi)形成各具特色的(de)(de)典型做法和有(you)效(xiao)(xiao)模式，加(jia)強推廣應用，實(shi)現減污降(jiang)碳協(xie)同(tong)增效(xiao)(xiao)。

城(cheng)市(shi)減(jian)污(wu)(wu)(wu)降碳協(xie)同度(du)是(shi)反(fan)映城(cheng)市(shi)層面減(jian)污(wu)(wu)(wu)降碳協(xie)同增(zeng)效水平的(de)度(du)量指標。提(ti)升城(cheng)市(shi)減(jian)污(wu)(wu)(wu)降碳協(xie)同度(du)的(de)關鍵(jian)在于從推(tui)動制度(du)創新、強化技術支撐等方面入手，協(xie)同有效治理(li)路徑，推(tui)動減(jian)污(wu)(wu)(wu)和降碳領域工(gong)作創新模式、形(xing)成合力、提(ti)高成效。

城市減(jian)污(wu)降(jiang)碳(tan)(tan)協(xie)(xie)同(tong)(tong)(tong)度可(ke)進(jin)(jin)一(yi)(yi)步分解(jie)為目(mu)標協(xie)(xie)同(tong)(tong)(tong)度、路(lu)徑(jing)協(xie)(xie)同(tong)(tong)(tong)度和(he)管(guan)理(li)協(xie)(xie)同(tong)(tong)(tong)度。其中，管(guan)理(li)協(xie)(xie)同(tong)(tong)(tong)度主要(yao)衡量(liang)減(jian)污(wu)和(he)降(jiang)碳(tan)(tan)工作在一(yi)(yi)體謀劃(hua)、一(yi)(yi)體部署、一(yi)(yi)體推(tui)進(jin)(jin)、一(yi)(yi)體考(kao)核(he)方面(mian)的(de)(de)協(xie)(xie)同(tong)(tong)(tong)推(tui)進(jin)(jin)情(qing)(qing)況，是(shi)(shi)(shi)提(ti)(ti)升目(mu)標協(xie)(xie)同(tong)(tong)(tong)度的(de)(de)支撐保障。路(lu)徑(jing)協(xie)(xie)同(tong)(tong)(tong)度重在體現能源、產業(ye)、運輸(shu)結(jie)構調整和(he)布局優(you)化、資源循環利用、治理(li)手段優(you)化等(deng)工作成(cheng)效，是(shi)(shi)(shi)提(ti)(ti)升目(mu)標協(xie)(xie)同(tong)(tong)(tong)度的(de)(de)內驅(qu)動(dong)力。目(mu)標協(xie)(xie)同(tong)(tong)(tong)度則主要(yao)反(fan)映污(wu)染物與(yu)溫室(shi)氣體協(xie)(xie)同(tong)(tong)(tong)減(jian)排情(qing)(qing)況以及降(jiang)碳(tan)(tan)、減(jian)污(wu)、擴綠(lv)、增長(chang)的(de)(de)協(xie)(xie)調發展水平，是(shi)(shi)(shi)管(guan)理(li)協(xie)(xie)同(tong)(tong)(tong)度和(he)路(lu)徑(jing)協(xie)(xie)同(tong)(tong)(tong)度有效提(ti)(ti)升的(de)(de)結(jie)果(guo)表(biao)征，也(ye)對加強管(guan)理(li)協(xie)(xie)同(tong)(tong)(tong)和(he)路(lu)徑(jing)協(xie)(xie)同(tong)(tong)(tong)提(ti)(ti)出了(le)要(yao)求(qiu)。

開展城市減污降碳協同度評價的背景與基礎

開展(zhan)城(cheng)市(shi)減(jian)污(wu)(wu)(wu)(wu)降(jiang)碳(tan)協同(tong)(tong)度評(ping)價是(shi)(shi)推(tui)(tui)(tui)動減(jian)污(wu)(wu)(wu)(wu)降(jiang)碳(tan)協同(tong)(tong)增效(xiao)(xiao)的有力(li)手(shou)(shou)段。從(cong)我國推(tui)(tui)(tui)進生態(tai)文(wen)明建設(she)示范區、無廢城(cheng)市(shi)、低碳(tan)城(cheng)市(shi)等(deng)(deng)工作來看(kan)，細化指標(biao)體(ti)(ti)系(xi)、豐富考(kao)核手(shou)(shou)段、量化評(ping)價標(biao)準、強化結(jie)果運用是(shi)(shi)其重要手(shou)(shou)段。從(cong)實(shi)踐層面看(kan)，城(cheng)市(shi)推(tui)(tui)(tui)動減(jian)污(wu)(wu)(wu)(wu)降(jiang)碳(tan)協同(tong)(tong)增效(xiao)(xiao)過程中(zhong)存(cun)在制度體(ti)(ti)系(xi)設(she)計不完善、部門推(tui)(tui)(tui)進合力(li)未形成、協同(tong)(tong)推(tui)(tui)(tui)進效(xiao)(xiao)果不明晰等(deng)(deng)問(wen)題(ti)。除資金安排、部門融合等(deng)(deng)需要時(shi)間周期外，更為重要的是(shi)(shi)缺乏一套相對權威、全面、可行的評(ping)價技術體(ti)(ti)系(xi)。現有相關評(ping)價指標(biao)體(ti)(ti)系(xi)側重點不同(tong)(tong)，難以全面有效(xiao)(xiao)度量城(cheng)市(shi)減(jian)污(wu)(wu)(wu)(wu)降(jiang)碳(tan)協同(tong)(tong)增效(xiao)(xiao)水(shui)平。亟須開展(zhan)城(cheng)市(shi)減(jian)污(wu)(wu)(wu)(wu)降(jiang)碳(tan)協同(tong)(tong)度評(ping)價，實(shi)現減(jian)污(wu)(wu)(wu)(wu)降(jiang)碳(tan)協同(tong)(tong)增效(xiao)(xiao)水(shui)平可量化、可監督、易考(kao)核。

開展(zhan)城市(shi)減污(wu)(wu)(wu)降(jiang)(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)度(du)評(ping)(ping)價工(gong)作具(ju)有扎實的(de)理(li)(li)論基(ji)礎和(he)實踐基(ji)礎。“污(wu)(wu)(wu)”和(he)“碳(tan)(tan)(tan)”的(de)產生環(huan)節主要(yao)包括(kuo)化石燃(ran)料燃(ran)燒排(pai)放、工(gong)藝過程排(pai)放、末(mo)端治(zhi)理(li)(li)排(pai)放。推動減污(wu)(wu)(wu)降(jiang)(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)增(zeng)效，就是要(yao)增(zeng)強減排(pai)政策(ce)(ce)措(cuo)施的(de)協(xie)同(tong)(tong)效應(ying)和(he)加和(he)效應(ying)，降(jiang)(jiang)低(di)拮抗效應(ying)。當前，推動城市(shi)減污(wu)(wu)(wu)降(jiang)(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)增(zeng)效已經具(ju)備(bei)了較好的(de)政策(ce)(ce)、法(fa)規、體制、行動等(deng)基(ji)礎。截至2023年8月，有28個省（自(zi)治(zhi)區(qu)(qu)、直(zhi)轄市(shi)）、市(shi)、縣級(ji)區(qu)(qu)域發布減污(wu)(wu)(wu)降(jiang)(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)增(zeng)效實施方案。多(duo)地將減污(wu)(wu)(wu)降(jiang)(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)增(zeng)效要(yao)求(qiu)納入“十(shi)四五”規劃，推動重點領域、重點行業和(he)各環(huan)境要(yao)素協(xie)同(tong)(tong)治(zhi)理(li)(li)，在統(tong)一(yi)(yi)政策(ce)(ce)規劃標準制定、統(tong)一(yi)(yi)科學(xue)監測評(ping)(ping)估、統(tong)一(yi)(yi)監督執法(fa)、統(tong)一(yi)(yi)督查問責等(deng)方面(mian)形成(cheng)了豐富的(de)實踐經驗(yan)。

指標突出重點、兼顧全面，方法體現差異、激勵為主

選(xuan)用(yong)指標(biao)要突(tu)出重(zhong)點、兼顧全面。單一指數評(ping)價(jia)(jia)方(fang)法適(shi)宜對單個指標(biao)描述(shu)的對象(xiang)進行評(ping)價(jia)(jia)，城市(shi)(shi)減污降(jiang)碳(tan)協(xie)(xie)同度(du)(du)內(nei)涵(han)豐(feng)富(fu)、涉及面廣，更(geng)宜采用(yong)綜合指數評(ping)價(jia)(jia)方(fang)法開展評(ping)價(jia)(jia)。要結合城市(shi)(shi)減污降(jiang)碳(tan)協(xie)(xie)同度(du)(du)內(nei)涵(han)及現有(you)評(ping)價(jia)(jia)工(gong)作基(ji)礎，堅(jian)持結果評(ping)價(jia)(jia)和(he)過程評(ping)價(jia)(jia)相結合、定量和(he)定性(xing)相結合，選(xuan)擇能夠(gou)表征(zheng)目標(biao)協(xie)(xie)同度(du)(du)、路徑協(xie)(xie)同度(du)(du)、管理(li)協(xie)(xie)同度(du)(du)的最關鍵指標(biao)，確(que)保(bao)每(mei)一項指標(biao)都和(he)減污降(jiang)碳(tan)有(you)關。指標(biao)數量不宜過多，要確(que)保(bao)數據可獲得性(xing)，便(bian)于(yu)橫(heng)縱向(xiang)對比分析。

評(ping)價方法要體現(xian)差異、激勵為(wei)主(zhu)。受發展階(jie)段、資源稟賦(fu)、戰(zhan)略定位、生態(tai)環保等因素影響(xiang)，我國城(cheng)市類(lei)型(xing)多樣(yang)，一套評(ping)價體系(xi)很難做到(dao)公平(ping)、公正。在指(zhi)標目(mu)標參考值設(she)定上(shang)，要體現(xian)綜合型(xing)、服務型(xing)、工(gong)業型(xing)、生態(tai)優(you)先型(xing)等城(cheng)市類(lei)型(xing)差異，優(you)先考慮城(cheng)市自身發布的有關(guan)規劃或方案中提(ti)及的目(mu)標要求，同(tong)時突出指(zhi)標目(mu)標參考值的前瞻性(xing)和引領性(xing)作用。權重設(she)置上(shang)側重制(zhi)度創新(xin)與技術支撐(cheng)方面指(zhi)標，激勵城(cheng)市創新(xin)減污降碳協同(tong)增效管理模(mo)式(shi)。

建議盡快出臺評價辦法，分年度開展成效評估

建議國家(jia)層面盡(jin)早出臺城(cheng)市(shi)減(jian)(jian)(jian)(jian)(jian)污(wu)降(jiang)(jiang)碳(tan)協(xie)同度評(ping)(ping)價(jia)辦(ban)法。加快制定城(cheng)市(shi)減(jian)(jian)(jian)(jian)(jian)污(wu)降(jiang)(jiang)碳(tan)協(xie)同度評(ping)(ping)價(jia)辦(ban)法，可作為(wei)減(jian)(jian)(jian)(jian)(jian)污(wu)降(jiang)(jiang)碳(tan)協(xie)同創(chuang)(chuang)新試點城(cheng)市(shi)遴選(xuan)的重要(yao)參考，用于引導(dao)減(jian)(jian)(jian)(jian)(jian)污(wu)降(jiang)(jiang)碳(tan)協(xie)同創(chuang)(chuang)新試點城(cheng)市(shi)明確(que)工作目標(biao)、主(zhu)要(yao)任(ren)務(wu)和努力方向；還可作為(wei)城(cheng)市(shi)減(jian)(jian)(jian)(jian)(jian)污(wu)降(jiang)(jiang)碳(tan)協(xie)同創(chuang)(chuang)新試點成效評(ping)(ping)估和動(dong)態管理的依據，加強過程考核和結(jie)果評(ping)(ping)價(jia)，指導(dao)城(cheng)市(shi)開展減(jian)(jian)(jian)(jian)(jian)污(wu)降(jiang)(jiang)碳(tan)協(xie)同創(chuang)(chuang)新試點工作。

分年度(du)開展城市減(jian)污(wu)降(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)(tong)創新(xin)(xin)試(shi)點成效(xiao)評估。一(yi)方面(mian)，結(jie)合(he)第一(yi)批城市減(jian)污(wu)降(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)(tong)創新(xin)(xin)試(shi)點工作(zuo)(zuo)，對試(shi)點城市減(jian)污(wu)降(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)(tong)度(du)開展年度(du)評估，指(zhi)導(dao)試(shi)點城市適(shi)時(shi)調(diao)整優化減(jian)污(wu)降(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)(tong)創新(xin)(xin)工作(zuo)(zuo)思路和任(ren)務舉(ju)措。另一(yi)方面(mian)，根據試(shi)點城市評估結(jie)果(guo)，分城市類型打(da)造(zao)一(yi)批減(jian)污(wu)降(jiang)碳(tan)(tan)(tan)協(xie)同(tong)(tong)(tong)創新(xin)(xin)標桿(gan)型城市，總(zong)結(jie)形成一(yi)批可復(fu)制、可推廣的試(shi)點經(jing)驗做(zuo)法。

鼓勵引導非(fei)試(shi)點(dian)城市開展減污降(jiang)碳協同度(du)自評估。非(fei)試(shi)點(dian)城市可結(jie)(jie)合實(shi)際自行設定(ding)城市減污降(jiang)碳協同度(du)評價指(zhi)標體(ti)系，明(ming)確切合實(shi)際的指(zhi)標目(mu)標值和權重(zhong)。根據自評估結(jie)(jie)果，識別薄弱環節(jie)，動(dong)態調整相(xiang)關工作(zuo)著力點(dian)，推動(dong)管理模式創新(xin)，提高環境治理綜合效能。

作者單位：生態環(huan)境部環(huan)境與經濟政策研究中心

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