為落實(shi)黨(dang)(dang)中(zhong)央、國(guo)務院決(jue)(jue)策(ce)部署，推進“十四(si)五”期間農(nong)業面源(yuan)污染(ran)防治工(gong)作，近期生(sheng)態環境部和(he)(he)農(nong)業農(nong)村部聯合印發(fa)了(le)《農(nong)業面源(yuan)污染(ran)治理(li)與監督指導實(shi)施方案（試行）》（以下簡稱《實(shi)施方案》）。此次《實(shi)施方案》的(de)發(fa)布充分體(ti)現了(le)黨(dang)(dang)中(zhong)央、國(guo)務院立足“三農(nong)”和(he)(he)新時期發(fa)展(zhan)需要，堅決(jue)(jue)打好污染(ran)防治攻堅戰(zhan)，實(shi)現生(sheng)態環境保(bao)護(hu)和(he)(he)國(guo)家糧食安(an)全“雙贏”目標的(de)決(jue)(jue)心和(he)(he)意志。

過(guo)(guo)去(qu)30年(nian)，為追求(qiu)糧食高(gao)產、滿足(zu)不(bu)斷增(zeng)長(chang)的(de)(de)(de)人口(kou)需求(qiu)，我國(guo)(guo)化(hua)肥、農(nong)(nong)(nong)(nong)藥和(he)(he)(he)(he)(he)(he)農(nong)(nong)(nong)(nong)膜的(de)(de)(de)使用(yong)量增(zeng)加(jia)(jia)(jia)2倍-4倍，農(nong)(nong)(nong)(nong)業(ye)(ye)化(hua)學品的(de)(de)(de)過(guo)(guo)量投入(ru)(ru)增(zeng)加(jia)(jia)(jia)了(le)農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污染(ran)(ran)的(de)(de)(de)風(feng)(feng)險(xian)。施入(ru)(ru)土(tu)(tu)壤(rang)(rang)(rang)中的(de)(de)(de)肥料養(yang)分(fen)以(yi)(yi)多種(zhong)途徑(jing)排(pai)(pai)放到環(huan)境(jing)(jing)中，如(ru)肥料氮可(ke)通(tong)(tong)過(guo)(guo)氨揮(hui)發(fa)(fa)、硝化(hua)和(he)(he)(he)(he)(he)(he)反硝化(hua)作用(yong)、地(di)表徑(jing)流和(he)(he)(he)(he)(he)(he)淋溶(rong)(rong)等(deng)(deng)途徑(jing)進入(ru)(ru)大(da)氣(qi)和(he)(he)(he)(he)(he)(he)水體(ti)，磷(lin)(lin)可(ke)通(tong)(tong)過(guo)(guo)徑(jing)流、侵蝕(shi)、淋失等(deng)(deng)進入(ru)(ru)水體(ti)，導致水體(ti)富營養(yang)化(hua)和(he)(he)(he)(he)(he)(he)大(da)氣(qi)污染(ran)(ran)等(deng)(deng)環(huan)境(jing)(jing)問題。土(tu)(tu)壤(rang)(rang)(rang)中殘留的(de)(de)(de)養(yang)分(fen)過(guo)(guo)多，也可(ke)能(neng)會增(zeng)加(jia)(jia)(jia)養(yang)分(fen)損(sun)(sun)失和(he)(he)(he)(he)(he)(he)環(huan)境(jing)(jing)污染(ran)(ran)的(de)(de)(de)風(feng)(feng)險(xian)。最新監測表明，化(hua)肥氮施入(ru)(ru)土(tu)(tu)壤(rang)(rang)(rang)后(hou)以(yi)(yi)氣(qi)態損(sun)(sun)失的(de)(de)(de)比例約占施氮量的(de)(de)(de)20%左右，通(tong)(tong)過(guo)(guo)徑(jing)流和(he)(he)(he)(he)(he)(he)淋溶(rong)(rong)損(sun)(sun)失的(de)(de)(de)約占10%。通(tong)(tong)過(guo)(guo)近20年(nian)連(lian)續監測，發(fa)(fa)現近30年(nian)來我國(guo)(guo)陸地(di)生(sheng)態系統(tong)大(da)氣(qi)氮沉降增(zeng)加(jia)(jia)(jia)了(le)60%，其中近2/3來自農(nong)(nong)(nong)(nong)業(ye)(ye)源。與氮相比，磷(lin)(lin)在(zai)(zai)土(tu)(tu)壤(rang)(rang)(rang)中相對穩定，移動性差，施入(ru)(ru)土(tu)(tu)壤(rang)(rang)(rang)中的(de)(de)(de)磷(lin)(lin)很(hen)大(da)一(yi)部分(fen)會被吸附或固定，但土(tu)(tu)壤(rang)(rang)(rang)磷(lin)(lin)一(yi)旦超過(guo)(guo)環(huan)境(jing)(jing)臨(lin)界值，損(sun)(sun)失到水體(ti)的(de)(de)(de)風(feng)(feng)險(xian)就會快速(su)增(zeng)加(jia)(jia)(jia)。研究表明，我國(guo)(guo)農(nong)(nong)(nong)(nong)田土(tu)(tu)壤(rang)(rang)(rang)有效(xiao)磷(lin)(lin)從上世紀80年(nian)代初的(de)(de)(de)7.4毫克(ke)(ke)(ke)/千(qian)(qian)克(ke)(ke)(ke)增(zeng)加(jia)(jia)(jia)到目前超過(guo)(guo)20.7 毫克(ke)(ke)(ke)/千(qian)(qian)克(ke)(ke)(ke)，果園菜地(di)等(deng)(deng)高(gao)投入(ru)(ru)農(nong)(nong)(nong)(nong)田土(tu)(tu)壤(rang)(rang)(rang)有效(xiao)磷(lin)(lin)高(gao)達70毫克(ke)(ke)(ke)/千(qian)(qian)克(ke)(ke)(ke)-110毫克(ke)(ke)(ke)/千(qian)(qian)克(ke)(ke)(ke)，土(tu)(tu)壤(rang)(rang)(rang)磷(lin)(lin)的(de)(de)(de)累積已經成(cheng)為面(mian)(mian)(mian)源污染(ran)(ran)最大(da)的(de)(de)(de)潛在(zai)(zai)因子。第二次全國(guo)(guo)污染(ran)(ran)源普查數據顯示，我國(guo)(guo)種(zhong)植業(ye)(ye)總(zong)氮和(he)(he)(he)(he)(he)(he)總(zong)磷(lin)(lin)排(pai)(pai)放均占全國(guo)(guo)水體(ti)污染(ran)(ran)總(zong)排(pai)(pai)放量的(de)(de)(de)24%左右。以(yi)(yi)長(chang)江(jiang)流域(yu)(yu)為例，農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污染(ran)(ran)占長(chang)江(jiang)水體(ti)氮磷(lin)(lin)輸(shu)入(ru)(ru)的(de)(de)(de)50%以(yi)(yi)上，過(guo)(guo)去(qu)30年(nian)間我國(guo)(guo)長(chang)江(jiang)流域(yu)(yu)可(ke)溶(rong)(rong)性無機氮磷(lin)(lin)含(han)量增(zeng)長(chang)4倍-5倍，貢獻近海氮磷(lin)(lin)排(pai)(pai)放的(de)(de)(de)60%和(he)(he)(he)(he)(he)(he)88%。因此，打(da)好農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污染(ran)(ran)治理(li)攻堅戰(zhan)，提升農(nong)(nong)(nong)(nong)業(ye)(ye)綠色發(fa)(fa)展能(neng)力，實現質量興(xing)農(nong)(nong)(nong)(nong)、綠色興(xing)農(nong)(nong)(nong)(nong)、科技(ji)興(xing)農(nong)(nong)(nong)(nong)，是我國(guo)(guo)今后(hou)一(yi)段時期需要應對的(de)(de)(de)一(yi)個(ge)重大(da)挑戰(zhan)。

自2015年(nian)(nian)原農(nong)業(ye)部提出“一(yi)控(kong)、兩(liang)減、三基本”的(de)目標與(yu)農(nong)業(ye)綠色(se)發(fa)展五大行動以(yi)來，我(wo)國化(hua)肥、農(nong)藥(yao)、農(nong)膜(mo)(mo)用(yong)量(liang)(liang)均得到了有(you)效控(kong)制，首次(ci)實現(xian)化(hua)肥農(nong)藥(yao)農(nong)膜(mo)(mo)用(yong)量(liang)(liang)連年(nian)(nian)負增(zeng)長。2017年(nian)(nian)我(wo)國種植(zhi)業(ye)總(zong)氮和(he)總(zong)磷水(shui)(shui)體排放較2007年(nian)(nian)分(fen)別(bie)減少了88萬(wan)噸和(he)3.3萬(wan)噸。全國七大流(liu)域和(he)湖泊的(de)氮磷濃度總(zong)體呈(cheng)下降趨勢，長江流(liu)域首次(ci)實現(xian)消除劣Ⅴ類水(shui)(shui)體。盡(jin)管如此(ci)，我(wo)國面源污(wu)染(ran)形勢依然嚴(yan)峻。2019年(nian)(nian)我(wo)國化(hua)肥施(shi)用(yong)量(liang)(liang)達5404萬(wan)噸，化(hua)肥施(shi)用(yong)強度（326千克(ke)/公頃(qing)）仍(reng)超國際安全施(shi)用(yong)水(shui)(shui)平建(jian)議(yi)的(de)225千克(ke)/公頃(qing)。2020年(nian)(nian)我(wo)國三大糧食作物化(hua)肥利(li)用(yong)率平均為(wei)40.2%，仍(reng)比(bi)歐美等發(fa)達國家低10-20個百分(fen)點。農(nong)藥(yao)和(he)農(nong)膜(mo)(mo)投入量(liang)(liang)分(fen)別(bie)為(wei)139萬(wan)噸/年(nian)(nian)和(he)241萬(wan)噸/年(nian)(nian)，雖出現(xian)增(zeng)量(liang)(liang)拐點，但(dan)施(shi)用(yong)量(liang)(liang)依然處于(yu)高位；農(nong)藥(yao)不合理施(shi)用(yong)現(xian)象在我(wo)國仍(reng)普遍(bian)存在，農(nong)藥(yao)利(li)用(yong)率為(wei)40.6%，低于(yu)發(fa)達國家的(de)50%-60%，我(wo)國農(nong)田土壤農(nong)膜(mo)(mo)殘留量(liang)(liang)高達118萬(wan)噸，農(nong)膜(mo)(mo)回收率低于(yu)60%。養(yang)殖業(ye)面源污(wu)染(ran)風險逐漸凸顯，其總(zong)氮和(he)總(zong)磷排放量(liang)(liang)在農(nong)業(ye)中占(zhan)比(bi)分(fen)別(bie)由(you)2007年(nian)(nian)的(de)37.9%和(he)56.3%上升(sheng)到2017年(nian)(nian)的(de)42.1%和(he)56.5%，水(shui)(shui)產(chan)養(yang)殖業(ye)的(de)污(wu)染(ran)物排放比(bi)例(li)較低，但(dan)總(zong)氮和(he)總(zong)磷的(de)絕對量(liang)(liang)仍(reng)呈(cheng)上升(sheng)趨勢。此(ci)外，我(wo)國流(liu)域水(shui)(shui)體農(nong)藥(yao)、抗生素、病原菌和(he)微(wei)塑(su)料等新型污(wu)染(ran)物的(de)風險開始凸顯，給我(wo)國水(shui)(shui)環境保(bao)護增(zeng)加了新的(de)挑戰。

新近發布的《實施方(fang)案》確定(ding)(ding)了(le)以削減土(tu)壤和(he)水環(huan)境農業面源污(wu)染(ran)(ran)(ran)負荷、促進土(tu)壤質量和(he)水質改(gai)善為核心，按照“抓重(zhong)點(dian)、分區治(zhi)、精細(xi)管”的基(ji)本(ben)思路，制定(ding)(ding)了(le)2025年和(he)2035年分階(jie)段重(zhong)點(dian)目(mu)標，在深(shen)入推進農業面源污(wu)染(ran)(ran)(ran)防治(zhi)、政策機制、監督管理等方(fang)面提(ti)出了(le)主要任(ren)務，并明確了(le)在我(wo)國農業面源污(wu)染(ran)(ran)(ran)重(zhong)點(dian)區域(yu)開展試點(dian)示范工程，對深(shen)入打好污(wu)染(ran)(ran)(ran)防治(zhi)攻堅(jian)戰具有(you)重(zhong)要的現實意(yi)義。為了(le)持續(xu)推動農業面源污(wu)染(ran)(ran)(ran)治(zhi)理體系的完善和(he)治(zhi)理能力的提(ti)升，還需(xu)加強以下三方(fang)面工作：

一、加強技(ji)術創新，大幅度提高(gao)資源利(li)用效(xiao)率，不斷降(jiang)低農業(ye)面源污染(ran)。

技(ji)(ji)(ji)術創(chuang)新(xin)(xin)(xin)是(shi)做好農(nong)(nong)(nong)(nong)(nong)業(ye)面源(yuan)(yuan)(yuan)(yuan)污(wu)染(ran)防治工(gong)作(zuo)的先決(jue)條件(jian)和(he)根(gen)本出路。實(shi)施技(ji)(ji)(ji)術創(chuang)新(xin)(xin)(xin)的重點是(shi)源(yuan)(yuan)(yuan)(yuan)頭減量(liang)(liang)、綠色投(tou)(tou)入(ru)(ru)品(pin)創(chuang)制(zhi)和(he)精(jing)(jing)準使用(yong)(yong)以及綠色減排等技(ji)(ji)(ji)術。首先，要創(chuang)新(xin)(xin)(xin)化肥、農(nong)(nong)(nong)(nong)(nong)藥(yao)(yao)、農(nong)(nong)(nong)(nong)(nong)膜等投(tou)(tou)入(ru)(ru)品(pin)的源(yuan)(yuan)(yuan)(yuan)頭減量(liang)(liang)技(ji)(ji)(ji)術。建議引入(ru)(ru)環(huan)境容量(liang)(liang)指標體系，對(dui)全國(guo)和(he)區域(yu)農(nong)(nong)(nong)(nong)(nong)業(ye)生產(chan)所需各(ge)類資源(yuan)(yuan)(yuan)(yuan)實(shi)施投(tou)(tou)入(ru)(ru)總量(liang)(liang)定額控(kong)制(zhi)，通過環(huan)境卡(ka)口(kou)的方(fang)法(fa)尋找“卡(ka)脖(bo)子”技(ji)(ji)(ji)術突破口(kou)，自主創(chuang)新(xin)(xin)(xin)關鍵技(ji)(ji)(ji)術，系統實(shi)現源(yuan)(yuan)(yuan)(yuan)頭減量(liang)(liang)、總量(liang)(liang)控(kong)制(zhi)的目標。其(qi)次，要創(chuang)新(xin)(xin)(xin)農(nong)(nong)(nong)(nong)(nong)業(ye)綠色投(tou)(tou)入(ru)(ru)品(pin)及其(qi)精(jing)(jing)準使用(yong)(yong)技(ji)(ji)(ji)術。在(zai)當前(qian)國(guo)家(jia)化肥農(nong)(nong)(nong)(nong)(nong)藥(yao)(yao)用(yong)(yong)量(liang)(liang)已經出現負增長(chang)的情(qing)況下(xia)，要進(jin)一步加強低(di)排放、低(di)殘留(liu)、智(zhi)能化新(xin)(xin)(xin)型綠色肥料和(he)農(nong)(nong)(nong)(nong)(nong)藥(yao)(yao)產(chan)品(pin)的研發(fa)，強化機械化、智(zhi)能化、精(jing)(jing)準化施肥施藥(yao)(yao)技(ji)(ji)(ji)術的創(chuang)新(xin)(xin)(xin)，強化大數據技(ji)(ji)(ji)術、人工(gong)智(zhi)能技(ji)(ji)(ji)術在(zai)農(nong)(nong)(nong)(nong)(nong)業(ye)面源(yuan)(yuan)(yuan)(yuan)污(wu)染(ran)治理中(zhong)的應(ying)用(yong)(yong)。最(zui)后，要根(gen)據農(nong)(nong)(nong)(nong)(nong)業(ye)面源(yuan)(yuan)(yuan)(yuan)污(wu)染(ran)的發(fa)生規律，制(zhi)定科學(xue)精(jing)(jing)準的治理方(fang)案，創(chuang)新(xin)(xin)(xin)多污(wu)染(ran)物協同(tong)減排技(ji)(ji)(ji)術和(he)生產(chan)生態協同(tong)技(ji)(ji)(ji)術，將農(nong)(nong)(nong)(nong)(nong)業(ye)化學(xue)品(pin)的環(huan)境影響降至最(zui)低(di)。

二、構建(jian)全(quan)產業鏈整體解決方案，增強系(xi)(xi)統減排增效能力，創(chuang)新防治體系(xi)(xi)。

農(nong)業面(mian)源(yuan)(yuan)污染治理是一個(ge)系統(tong)工程(cheng)，要以系統(tong)思路從(cong)全鏈(lian)(lian)條(tiao)(tiao)角(jiao)度尋(xun)求根本的(de)(de)解決方案。農(nong)業本身就(jiu)是一個(ge)從(cong)資(zi)源(yuan)(yuan)投(tou)入到(dao)生(sheng)(sheng)(sheng)產過程(cheng)再到(dao)人類消費和(he)環(huan)(huan)境(jing)保(bao)護的(de)(de)全產業鏈(lian)(lian)系統(tong)，整個(ge)鏈(lian)(lian)條(tiao)(tiao)中(zhong)的(de)(de)各個(ge)環(huan)(huan)節及(ji)其連(lian)接界面(mian)都是資(zi)源(yuan)(yuan)利(li)用(yong)與(yu)(yu)環(huan)(huan)境(jing)排放(fang)的(de)(de)關(guan)鍵點，它們連(lian)接起來(lai)就(jiu)構成了(le)一個(ge)多環(huan)(huan)節易泄(xie)漏的(de)(de)環(huan)(huan)境(jing)影響系統(tong)。因此，必須準確找到(dao)主要污染物環(huan)(huan)境(jing)排放(fang)的(de)(de)重點環(huan)(huan)節和(he)關(guan)鍵界面(mian)，開展(zhan)(zhan)有(you)針(zhen)對性的(de)(de)減排關(guan)鍵技術(shu)創(chuang)新，進而系統(tong)提升(sheng)全鏈(lian)(lian)條(tiao)(tiao)資(zi)源(yuan)(yuan)利(li)用(yong)效率、減少環(huan)(huan)境(jing)排放(fang)。據(ju)此，需要構建農(nong)業全產業鏈(lian)(lian)綠(lv)色(se)投(tou)入品、綠(lv)色(se)生(sheng)(sheng)(sheng)產、種養結合、綠(lv)色(se)消費、有(you)機廢棄物資(zi)源(yuan)(yuan)化(hua)循環(huan)(huan)利(li)用(yong)等(deng)一體化(hua)的(de)(de)系統(tong)解決方案。在此基礎上，完(wan)善產業鏈(lian)(lian)融合綠(lv)色(se)發(fa)展(zhan)(zhan)的(de)(de)機制(zhi)與(yu)(yu)政策(ce)，促進系統(tong)升(sheng)級，實(shi)現全鏈(lian)(lian)條(tiao)(tiao)污染防控與(yu)(yu)減排，推動綠(lv)色(se)生(sheng)(sheng)(sheng)產、生(sheng)(sheng)(sheng)活與(yu)(yu)生(sheng)(sheng)(sheng)態環(huan)(huan)境(jing)保(bao)護的(de)(de)協同發(fa)展(zhan)(zhan)。

三、構建區域“政產學研用(yong)”一體化(hua)綠(lv)色(se)發展模式，推動(dong)政策和技術落(luo)地。

構(gou)建(jian)區域(yu)(yu)綠(lv)(lv)色(se)(se)發(fa)(fa)展(zhan)模(mo)式要以人與(yu)(yu)(yu)(yu)(yu)自然和(he)(he)諧和(he)(he)共生(sheng)(sheng)共存的(de)(de)綠(lv)(lv)色(se)(se)發(fa)(fa)展(zhan)理念為引(yin)領，以資(zi)源高效利用(yong)(yong)、生(sheng)(sheng)態環(huan)境保護和(he)(he)國家(jia)糧食(shi)安全“三贏”為核心目標，尊重規律，前瞻謀劃，統(tong)籌(chou)考慮區域(yu)(yu)自然資(zi)源稟賦、生(sheng)(sheng)態環(huan)境容量、農(nong)(nong)(nong)業(ye)生(sheng)(sheng)產(chan)目標和(he)(he)特(te)征、社會(hui)(hui)發(fa)(fa)展(zhan)需求(qiu)等多項綠(lv)(lv)色(se)(se)發(fa)(fa)展(zhan)指標，“自上(shang)而(er)下”系統(tong)設計區域(yu)(yu)農(nong)(nong)(nong)業(ye)生(sheng)(sheng)產(chan)規模(mo)、結構(gou)與(yu)(yu)(yu)(yu)(yu)技術模(mo)式，科學調整區域(yu)(yu)農(nong)(nong)(nong)業(ye)供給側結構(gou)與(yu)(yu)(yu)(yu)(yu)優(you)化空間布局(ju)；深(shen)度剖(pou)析(xi)技術推(tui)廣(guang)與(yu)(yu)(yu)(yu)(yu)應(ying)用(yong)(yong)的(de)(de)關鍵限制因素(su)，通過(guo)政(zheng)府引(yin)導、市場(chang)規范、社會(hui)(hui)行動(dong)(dong)(dong)，推(tui)動(dong)(dong)(dong)綠(lv)(lv)色(se)(se)減排與(yu)(yu)(yu)(yu)(yu)污染治(zhi)理技術大面(mian)積(ji)應(ying)用(yong)(yong)；充分發(fa)(fa)揮縣域(yu)(yu)或流(liu)域(yu)(yu)各部(bu)門、各主體(ti)的(de)(de)能動(dong)(dong)(dong)性及其聯(lian)動(dong)(dong)(dong)，創(chuang)新“政(zheng)產(chan)學研用(yong)(yong)”五位一體(ti)的(de)(de)區域(yu)(yu)綠(lv)(lv)色(se)(se)發(fa)(fa)展(zhan)模(mo)式，全面(mian)推(tui)動(dong)(dong)(dong)農(nong)(nong)(nong)業(ye)面(mian)源污染治(zhi)理與(yu)(yu)(yu)(yu)(yu)監督方案的(de)(de)落地(di)實施，推(tui)動(dong)(dong)(dong)農(nong)(nong)(nong)業(ye)綠(lv)(lv)色(se)(se)轉型。

作者系中國(guo)工程院(yuan)院(yuan)士、中國(guo)農(nong)業大學(xue)資源(yuan)與環境學(xue)院(yuan)教授

來(lai)源(yuan)：中國環境報