中德农业源污染管控制度比较研究

已有许多研究证实防治农业生产过程中氮磷进入水域以及氮素进入大气环境已成为现代农业面临的最大挑战之一。为分析中国在农业源污染防控中存在问题,本文对中国和德国近年来颁布的相关法律、法规、技术标准和实施效果进行了综述和比较分析。研究显示,与中国相似,德国人均耕地资源比较少,以家庭农场为单元的经营方式是德国农业的主要生产方式。农业存在经营规模相对小而分散,受气象条件和市场影响风险大、利润薄、需要财政补贴才能生存等问题。对于农业源污染治理,既要实现环境目标,也要顾及农民利益、农业发展和粮食安全,难以简单采用关、停、并、转等行政指令和惩罚性措施,主要是建立和实施农业源污染管控制度。为提高农民施肥技术水平,减少农田化肥养分投入量,德国最有效的做法是在长期试验研究基础上,为农民专门设计和制作了一套比较完整的分区、分类、量化施肥技术指标和规程,这些指标简单、易记、易懂,对不同地区土壤和气候条件有良好适用性,易于推广和普及,对于提高农民施肥技术水平,实现减肥增产、减肥高产发挥了重要作用。在防治农业源氮磷进入水环境,化合态氮进入大气环境方面,德国主要做法是研究、建立和实施一系列与经济奖惩措施关联的限定性技术标准,对农田氮素养分投入量、农田氮磷盈余量、施肥期、施肥方法、种植作物类型等给出了明确的规定和技术指标。同时不断探索新的、更有效的监管和监测方法,充分发挥经济杠杆作用,鼓励、帮助和疏导农民广泛采用更先进、更精准和环境友好的替代技术。农业源污染管控制度的实施使得自20世纪80年代以来,德国农田化肥养分投入量减少了一半,以农田面积（耕地面积与长期作物面积之和）计化肥养分量从404 kg·hm ^-2减少到目前的192 kg·hm ^-2,仅为目前中国的53%,同期粮食单产仍提高了56%,从4 779 kg·hm ^-2增加到目前的7 464 kg·hm ^-2,比中国目前粮食单产仍然高37%。中国至今缺少为农民专门设计、适合农民认知和直接采用的量化施肥技术指标。目前也无与国家及地方政府奖惩政策关联的限定性技术标准出台,无论在全国范围,还是在重点流域,至今难以形成有制度性保障的农业源污染管控体系。在占作物总播面23.6%的蔬菜、水果、花卉等高收益作物农田上,农民盲目施肥、过量施肥情形普遍,在这类农田上,氮磷养分盈余量远超过德国肥料法规所规定的环境安全限量（50 kg N·hm ^-2、10 kg P₂O₅·hm ^-2）。比较研究还显示,实施农业源污染管控制度的核心是以创新研究带动法律、法规、相关技术标准和监管方法的出台和广泛实施。而中国近年来公益性土壤肥料专业科研机构的均质化、碎片化,以及科研机构在绩效考核中对SCI论文点数、发文量等量化指标的过分倚重,使得相关研究薄弱,亟需加以改进。

A Comparative Study Between China and Germany on the Control System for Agricultural Source Pollution

A lot of studies has demonstrated that preventing nitrogen and phosphorus from agricultural production into water and atmospheric environments has become one of the largest challenges facing modern agriculture. In order to understand status and problems existing in pollution control from agricultural sources in China, a comparative study between China and Germany on the control systems for agricultural source pollution was carried out. The relevant laws, regulations and technical standards issued by China and Germany were reviewed and summarized, and implementation effects of these regulations in recent years were compared. Study showed that similar to China, because of the short of per capita arable land resources in Germany, the family farm has been the main management form for agriculture in Germany. Farmers in Germany had always to face several problems, such as relatively small management scale, scattered fields, high risks and low profits, due to meteorological and marketing uncertainties. Financial subsidy by government has been essential to farmer’s surviving and agricultural development in Germany. Thus, attentions should always be paid not only on environmental objectives, but also on farmer’s interests, agricultural surviving and food security. In such conditions, main approach for agricultural source pollution control was to establish and running the control system and mechanisms with institutional guarantee, instead of simply adopting administrative punitive measures to farmers, such as closing, stopping, merging and turning over. For improving farmer’s knowledge and techniques of fertilization with the purpose to cut down fertilizer application amount, the most effective way was to design a complete quantitative criterions for best farmer’s fertilization practices with differentiated regions and classes’ specifications. These simple quantitative criterions were easy to be understood by farmers and applicable to soil and climate conditions in different regions. Subsequently, these quantitative criterions were easy to be disseminated and have contributed greatly in improving crop yield by decreased fertilizer application. For prevention of nitrogen and phosphorus releasing from agriculture into water and atmosphere, main measures in Germany were establishing and implementing a series of technical specifications with legal restriction and punishments, in which nitrogen input, nitrogen and phosphorus surplus of crop land, fertilizing seasons, fertilizing approach as well as crop rotations were clearly regulated. At the same time, new and more effective monitoring and management methods have been studied continuously in the purpose to enhance economic leverage’s role, to encourage and to help farmers for accepting more accurate and environmentally friendly technique alternatives. Through implementing agricultural source pollution control strategies, the fertilizer input of Germany has been reduced by 50% since the 1980s. The average fertilizer application amount in terms of farmland area (arable land area and long-term crop area) has been reduced from 404 kg·hm ^-2 to 192 kg·hm ^-2, which was 53% of the current value of China. In the same period, the average grain yield in Germany increased by 56%, from 4 779 kg·hm ^-2 to 7 464 kg·hm ^-2, which was about 37% higher than the current value of China. For improving farmer’s knowledge and techniques of fertilization with the purpose to cut down fertilizer application amount, the most effective approach was to design and complete a set of quantitative criterions for best farmer’s fertilization practices with differentiated regions and classes’ specifications. These simple quantitative criterions were easy to be understand by the farmers and applicable to soil and climate conditions in different regions. Subsequently, these quantitative criterions were easy to be disseminated and played important role in improving farmers' fertilization techniques and increasing crop yield continuously by decreased fertilizer amount. Up to now, there has been a lack of quantitative criterions for best fertilization practices designed for farmers in China, which were suitable for farmers' cognition and direct use. Also, there has been no technical specifications related to the national and local government's reward and punishment policies issued. Whether in nationwide or in a watershed case, it was still difficult to operate agricultural source pollution control with institutional guarantee. The area of vegetable, fruit, flowers and other cash crops accounted for 23.6% of the total cropping area in China, which was very common for farmers to apply fertilizer blindly or excessively. In such crop field, the nitrogen and phosphorus nutrient surplus far exceeds the environmental safety limit (50 kg N·hm ^-2, 10 kg P₂O₅·hm ^-2) given by German fertilizer regulations. Up to now, there has been a lack of quantitative criterions for the best fertilization practices designed for farmers in China, which were suitable for farmers' cognition and direct use. Also, there has been no technical specifications issued, which was related to the state or local government's reward and punishment policies for environment protection. Whether in nationwide or in a watershed case, it was still difficult to operate agricultural source pollution control with institutional guarantee. Analysis showed that the core for agricultural source pollution control was to issue and implement relevant laws, regulations, technical standards and monitoring methods by innovative research works. In recent years, however, the concerning research work has been weakened up due to homogenization and fragmentation of the research institutions, who are originally specialized for applied research works for soil and fertilization. Also, the quantitative evaluation system for scientific contribution and the excessive dependence on papers with high SCI-index has negative influences on the researches for practical use. This needs to be improved urgently.