饮用水水源地保护政策执行中的问题与系统化治理路径研究

Research on Problems in the Implementation of Drinking Water Source Protection Policies and Systemic Governance Approaches

摘要: 饮用水水源地保护是保障城乡饮水安全与公共健康的核心环节。近年来，我国通过《水污染防治行动计划》等一系列政策行动，水源地水质安全保障能力显著增强。然而，现行以单一水质指标为核心的监管模式，在实践中逐渐暴露出生态完整性考量不足、跨部门协同困难、法规标准衔接不畅等系统性问题，导致“水质达标但水量不稳、生态功能退化”的结构性风险日益凸显。本文基于“山水林田湖草沙生命共同体”与“三水统筹”的系统治理理念，深入剖析当前饮用水水源地保护在空间划定、管理体制与法规执行中存在的多维矛盾，提出应构建以流域为单元、多部门协同、全要素覆盖、全过程管控的系统化治理路径。具体建议包括：完善基于生态过程的梯度化空间管控体系、构建权责利统一的跨域协同治理机制、强化覆盖全过程的严密法治保障。研究旨在为推动我国饮用水水源地保护从被动应对向主动保障、从分要素管控向系统治理转型提供理论参考与实践指引。

Abstract: Protecting drinking water sources is essential for ensuring the safety of urban and rural drinking water supplies and public health. In recent years, my country has significantly enhanced its ability to ensure the safety of water sources through a series of policies and actions, such as the Water Pollution Prevention and Control Action Plan. However, the current regulatory model, which focuses on a single water quality indicator, has revealed systemic issues in practice. These include insufficient consideration of ecological integrity, difficulties in interdepartmental coordination and poor alignment of regulations and standards. These issues have led to an increasing number of structural risks, characterised by “water quality compliance, but unstable water volume and degraded ecological functions”. Grounded in the systemic governance concepts of the “mountain-water-forest-field-lake-grassland-desert life community” and “integrated management of three waters”, this paper thoroughly analyses the multidimensional contradictions in spatial delineation, management systems and regulatory enforcement within current drinking water source protection. The paper proposes establishing a systematic governance pathway centred on river basins featuring multi-departmental coordination, comprehensive coverage of all elements and end-to-end control. Specific recommendations include refining a gradient-based spatial control system grounded in ecological processes, establishing cross-regional collaborative governance mechanisms that unify rights, responsibilities and interests, and strengthening rigorous legal safeguards covering the entire process. The aim of this research is to provide theoretical references and practical guidance for advancing China’s drinking water source protection, moving from reactive responses to proactive safeguards and from fragmented elemental controls to systemic governance. Research on Problems in the Implementation of Drinking Water Source Protection Policies and Pathways for Systemic Governance.