2023年(nian)6月(yue)，省(sheng)第一生態環(huan)境保護(hu)督察(cha)組(以下(xia)簡稱督察(cha)組)對長(chang)沙(sha)市開(kai)展督察(cha)期間，發現(xian)長(chang)沙(sha)市渣土、建筑垃圾(ji)固(gu)體廢(fei)棄物、盾構土等建筑垃圾(ji)消(xiao)納能力不(bu)足(zu)，處理不(bu)規范，揚塵污染(ran)(ran)、廢(fei)水污染(ran)(ran)、尾泥污染(ran)(ran)、生態破壞等問題突(tu)出，人民群眾(zhong)反映(ying)強烈，長(chang)沙(sha)市相(xiang)關部(bu)門及(ji)相(xiang)關區政府責任(ren)落實(shi)不(bu)到位，日常監管不(bu)夠有(you)力。

　　一、基本情況

　　《中(zhong)華人民(min)共和國固(gu)體廢物(wu)污(wu)染環(huan)(huan)(huan)境(jing)(jing)防(fang)治法》規(gui)(gui)(gui)定(ding)，縣級以(yi)上人民(min)政府應(ying)(ying)當(dang)加(jia)強建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)污(wu)染環(huan)(huan)(huan)境(jing)(jing)防(fang)治，應(ying)(ying)當(dang)制定(ding)包括源頭(tou)減量(liang)(liang)、分(fen)類處理(li)(li)、消納設施(shi)和場所布(bu)局及建(jian)(jian)設等在內(nei)的(de)建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)污(wu)染環(huan)(huan)(huan)境(jing)(jing)防(fang)治工(gong)作規(gui)(gui)(gui)劃，應(ying)(ying)當(dang)推動建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)綜合利(li)(li)用。建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)資(zi)(zi)源化(hua)(hua)(hua)回收利(li)(li)用是(shi)砂石(shi)骨(gu)料領(ling)域的(de)重(zhong)要(yao)(yao)市(shi)(shi)場，長(chang)(chang)沙(sha)市(shi)(shi)建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)產(chan)生(sheng)量(liang)(liang)約占全省(sheng)(sheng)的(de)50%左右，在全省(sheng)(sheng)較早啟動資(zi)(zi)源化(hua)(hua)(hua)回收工(gong)作，并(bing)建(jian)(jian)設了長(chang)(chang)沙(sha)市(shi)(shi)建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)智慧監管(guan)平臺。2019年(nian)11月4日，工(gong)業(ye)(ye)和信息化(hua)(hua)(hua)部聯合十部委下(xia)發《關(guan)(guan)于推進機制砂石(shi)行業(ye)(ye)高質量(liang)(liang)發展的(de)若干意見》，要(yao)(yao)求機制砂石(shi)企業(ye)(ye)要(yao)(yao)堅(jian)持(chi)綠(lv)色低碳循環(huan)(huan)(huan)發展，生(sheng)產(chan)線(xian)配套建(jian)(jian)設抑塵(chen)收塵(chen)、水處理(li)(li)和降噪(zao)等污(wu)染防(fang)治以(yi)及水土(tu)保持(chi)設施(shi)，對設備、產(chan)品采取棚化(hua)(hua)(hua)密封或其他(ta)有(you)(you)(you)效覆蓋措(cuo)施(shi)，推進清潔生(sheng)產(chan)，嚴控無組織排放，滿足達標排放等環(huan)(huan)(huan)保要(yao)(yao)求。《長(chang)(chang)沙(sha)市(shi)(shi)建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)資(zi)(zi)源化(hua)(hua)(hua)利(li)(li)用管(guan)理(li)(li)辦法》規(gui)(gui)(gui)定(ding)，處置(zhi)企業(ye)(ye)和利(li)(li)用企業(ye)(ye)應(ying)(ying)當(dang)按照(zhao)環(huan)(huan)(huan)境(jing)(jing)保護有(you)(you)(you)關(guan)(guan)規(gui)(gui)(gui)定(ding)處理(li)(li)生(sheng)產(chan)過程中(zhong)污(wu)水、粉塵(chen)、噪(zao)聲等，防(fang)止(zhi)二次污(wu)染。《長(chang)(chang)沙(sha)市(shi)(shi)渣土(tu)消納場布(bu)局規(gui)(gui)(gui)劃(2021-2035)》《長(chang)(chang)沙(sha)市(shi)(shi)建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)治理(li)(li)專項規(gui)(gui)(gui)劃(2020-2035)》均對污(wu)染防(fang)治工(gong)作提(ti)出(chu)(chu)相(xiang)關(guan)(guan)要(yao)(yao)求。2020年(nian)省(sheng)(sheng)級生(sheng)態環(huan)(huan)(huan)保督(du)察“回頭(tou)看”和省(sheng)(sheng)生(sheng)態環(huan)(huan)(huan)境(jing)(jing)警示片多次指出(chu)(chu)過長(chang)(chang)沙(sha)市(shi)(shi)渣土(tu)處置(zhi)利(li)(li)用相(xiang)關(guan)(guan)問題(ti)，有(you)(you)(you)關(guan)(guan)責任單(dan)位(wei)進行了一定(ding)整改。據統計(ji)，長(chang)(chang)沙(sha)市(shi)(shi)現批準建(jian)(jian)設有(you)(you)(you)渣土(tu)資(zi)(zi)源化(hua)(hua)(hua)利(li)(li)用場11個(ge)、盾構土(tu)環(huan)(huan)(huan)保處置(zhi)場7個(ge)、建(jian)(jian)筑(zhu)(zhu)垃(la)(la)圾(ji)特許經(jing)營企業(ye)(ye)5家。

　　二、存在問題

　　督察組抽查(cha)部分處置(zhi)場(chang)，發(fa)現長沙(sha)市(shi)建筑垃圾(ji)資(zi)源化回(hui)收利用能力不足、水平不夠(gou)高(gao)、監管(guan)不夠(gou)有力、環境問題(ti)比(bi)較突出;此外檢查(cha)還發(fa)現一些未辦(ban)理手續的(de)非法處置(zhi)場(chang)所，沒有任何污(wu)染防治設施，生態破壞(huai)嚴重(zhong)。

　　(一)處置利用不平衡、不充分。一(yi)是渣(zha)(zha)土(tu)(tu)(tu)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)利(li)用(yong)能(neng)力(li)不(bu)(bu)足。根據長(chang)沙(sha)(sha)市(shi)城管部(bu)(bu)門統(tong)計(ji)(ji)，2021年(nian)1月(yue)(yue)至2023年(nian)5月(yue)(yue)，長(chang)沙(sha)(sha)市(shi)工(gong)(gong)(gong)程渣(zha)(zha)土(tu)(tu)(tu)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)申(shen)報(bao)量(liang)(liang)(liang)共計(ji)(ji)12751萬(wan)方，平均(jun)(jun)每年(nian)約5100萬(wan)方。《長(chang)沙(sha)(sha)市(shi)渣(zha)(zha)土(tu)(tu)(tu)消(xiao)(xiao)納(na)場(chang)(chang)(chang)布局規(gui)(gui)(gui)劃(hua)(hua)(2021-2035)》共規(gui)(gui)(gui)劃(hua)(hua)建(jian)設(she)57處(chu)(chu)(chu)(chu)場(chang)(chang)(chang)址作為(wei)推薦消(xiao)(xiao)納(na)場(chang)(chang)(chang)，總(zong)庫容量(liang)(liang)(liang)約為(wei)17290萬(wan)方，按平均(jun)(jun)計(ji)(ji)算每年(nian)消(xiao)(xiao)納(na)能(neng)力(li)約為(wei)1152萬(wan)方，渣(zha)(zha)土(tu)(tu)(tu)消(xiao)(xiao)納(na)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)能(neng)力(li)嚴重(zhong)不(bu)(bu)足，現有消(xiao)(xiao)納(na)場(chang)(chang)(chang)基(ji)本沒有容量(liang)(liang)(liang)，近些年(nian)來(lai)經(jing)常發生違規(gui)(gui)(gui)傾(qing)倒、填埋(mai)問題，群眾投訴較(jiao)多。經(jing)調查了解，由于(yu)沒有消(xiao)(xiao)納(na)場(chang)(chang)(chang)容量(liang)(liang)(liang)，大(da)部(bu)(bu)分(fen)盾構土(tu)(tu)(tu)環保(bao)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)場(chang)(chang)(chang)存(cun)在(zai)尾泥沒有處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)去向、正常經(jing)營(ying)困難(nan)現象。二是資(zi)(zi)源化(hua)(hua)回(hui)收(shou)(shou)利(li)用(yong)率不(bu)(bu)高。《長(chang)沙(sha)(sha)市(shi)渣(zha)(zha)土(tu)(tu)(tu)消(xiao)(xiao)納(na)場(chang)(chang)(chang)布局規(gui)(gui)(gui)劃(hua)(hua)(2021-2035)》要求“2021年(nian)至2025年(nian)期間(jian)，渣(zha)(zha)土(tu)(tu)(tu)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)回(hui)收(shou)(shou)率要達到75%”，據長(chang)沙(sha)(sha)市(shi)城管部(bu)(bu)門統(tong)計(ji)(ji)，2021年(nian)1月(yue)(yue)至2023年(nian)5月(yue)(yue)，長(chang)沙(sha)(sha)市(shi)工(gong)(gong)(gong)程渣(zha)(zha)土(tu)(tu)(tu)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)申(shen)報(bao)量(liang)(liang)(liang)共計(ji)(ji)12700萬(wan)方，申(shen)報(bao)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)回(hui)收(shou)(shou)量(liang)(liang)(liang)6788萬(wan)方，處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)回(hui)收(shou)(shou)率53%，其中(zhong)資(zi)(zi)源化(hua)(hua)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)利(li)用(yong)總(zong)量(liang)(liang)(liang)為(wei)359.36萬(wan)方，差距很大(da)。根據《長(chang)沙(sha)(sha)市(shi)建(jian)筑(zhu)垃圾治理(li)專項規(gui)(gui)(gui)劃(hua)(hua)(2020-2035)》，用(yong)人均(jun)(jun)乘數(shu)法每年(nian)建(jian)筑(zhu)垃圾(不(bu)(bu)含工(gong)(gong)(gong)程渣(zha)(zha)土(tu)(tu)(tu))產生量(liang)(liang)(liang)約為(wei)1080萬(wan)噸(dun)(dun)，而(er)2022年(nian)納(na)入住建(jian)部(bu)(bu)門統(tong)計(ji)(ji)口(kou)徑(jing)的(de)(de)產生量(liang)(liang)(liang)僅(jin)為(wei)343.17萬(wan)噸(dun)(dun)，資(zi)(zi)源化(hua)(hua)量(liang)(liang)(liang)為(wei)307.2萬(wan)噸(dun)(dun);納(na)入統(tong)計(ji)(ji)的(de)(de)盾構土(tu)(tu)(tu)年(nian)均(jun)(jun)申(shen)報(bao)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)約為(wei)48萬(wan)方、約80萬(wan)噸(dun)(dun)，建(jian)筑(zhu)垃圾和盾構土(tu)(tu)(tu)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)約為(wei)387萬(wan)噸(dun)(dun)，與規(gui)(gui)(gui)劃(hua)(hua)預計(ji)(ji)的(de)(de)產生量(liang)(liang)(liang)差距巨大(da)，大(da)量(liang)(liang)(liang)建(jian)筑(zhu)垃圾未納(na)入資(zi)(zi)源化(hua)(hua)回(hui)收(shou)(shou)范圍。三是資(zi)(zi)源化(hua)(hua)回(hui)收(shou)(shou)利(li)用(yong)技(ji)術(shu)不(bu)(bu)高。工(gong)(gong)(gong)程渣(zha)(zha)土(tu)(tu)(tu)資(zi)(zi)源化(hua)(hua)利(li)用(yong)處(chu)(chu)(chu)(chu)于(yu)試驗階(jie)段，綜合(he)利(li)用(yong)方式較(jiao)少(shao)(shao)、工(gong)(gong)(gong)藝簡(jian)單，缺少(shao)(shao)配(pei)套政策支持，再生產品市(shi)場(chang)(chang)(chang)應用(yong)困難(nan)。其中(zhong)盾構土(tu)(tu)(tu)環保(bao)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)場(chang)(chang)(chang)主要是對盾構土(tu)(tu)(tu)進(jin)行無害化(hua)(hua)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)、減量(liang)(liang)(liang)化(hua)(hua)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)，由于(yu)資(zi)(zi)源化(hua)(hua)利(li)用(yong)技(ji)術(shu)不(bu)(bu)高，粗放式加(jia)工(gong)(gong)(gong)生產，仍(reng)產生較(jiao)高比例的(de)(de)尾渣(zha)(zha)要填埋(mai)處(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)(zhi)(zhi)。

　　(一)處置利用不平衡、不充分。一(yi)是(shi)渣(zha)(zha)(zha)(zha)土(tu)(tu)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)利(li)用(yong)(yong)(yong)(yong)(yong)能力不(bu)足(zu)。根據長(chang)(chang)沙(sha)(sha)(sha)市(shi)(shi)(shi)城管部(bu)門統(tong)計(ji)(ji)，2021年(nian)(nian)1月(yue)至2023年(nian)(nian)5月(yue)，長(chang)(chang)沙(sha)(sha)(sha)市(shi)(shi)(shi)工(gong)(gong)程渣(zha)(zha)(zha)(zha)土(tu)(tu)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)申(shen)(shen)報(bao)量(liang)(liang)(liang)(liang)共計(ji)(ji)12751萬(wan)(wan)方(fang)，平均(jun)每(mei)(mei)年(nian)(nian)約(yue)(yue)5100萬(wan)(wan)方(fang)。《長(chang)(chang)沙(sha)(sha)(sha)市(shi)(shi)(shi)渣(zha)(zha)(zha)(zha)土(tu)(tu)消(xiao)(xiao)(xiao)納(na)場(chang)(chang)(chang)布局規(gui)劃(2021-2035)》共規(gui)劃建(jian)設(she)57處(chu)(chu)(chu)(chu)(chu)場(chang)(chang)(chang)址作為(wei)(wei)推薦消(xiao)(xiao)(xiao)納(na)場(chang)(chang)(chang)，總(zong)(zong)庫(ku)容(rong)(rong)量(liang)(liang)(liang)(liang)約(yue)(yue)為(wei)(wei)17290萬(wan)(wan)方(fang)，按平均(jun)計(ji)(ji)算(suan)每(mei)(mei)年(nian)(nian)消(xiao)(xiao)(xiao)納(na)能力約(yue)(yue)為(wei)(wei)1152萬(wan)(wan)方(fang)，渣(zha)(zha)(zha)(zha)土(tu)(tu)消(xiao)(xiao)(xiao)納(na)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)能力嚴(yan)重不(bu)足(zu)，現有消(xiao)(xiao)(xiao)納(na)場(chang)(chang)(chang)基本(ben)沒(mei)有容(rong)(rong)量(liang)(liang)(liang)(liang)，近些年(nian)(nian)來經(jing)常(chang)發生(sheng)(sheng)(sheng)違(wei)規(gui)傾倒、填埋(mai)問(wen)題，群(qun)眾投訴較多。經(jing)調查(cha)了解，由于沒(mei)有消(xiao)(xiao)(xiao)納(na)場(chang)(chang)(chang)容(rong)(rong)量(liang)(liang)(liang)(liang)，大(da)部(bu)分盾(dun)構(gou)(gou)土(tu)(tu)環(huan)保處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)場(chang)(chang)(chang)存在尾泥沒(mei)有處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)去(qu)向(xiang)、正常(chang)經(jing)營困(kun)難現象。二是(shi)資(zi)(zi)(zi)源(yuan)化(hua)(hua)(hua)回(hui)(hui)收(shou)利(li)用(yong)(yong)(yong)(yong)(yong)率不(bu)高。《長(chang)(chang)沙(sha)(sha)(sha)市(shi)(shi)(shi)渣(zha)(zha)(zha)(zha)土(tu)(tu)消(xiao)(xiao)(xiao)納(na)場(chang)(chang)(chang)布局規(gui)劃(2021-2035)》要(yao)(yao)求(qiu)“2021年(nian)(nian)至2025年(nian)(nian)期間，渣(zha)(zha)(zha)(zha)土(tu)(tu)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)回(hui)(hui)收(shou)率要(yao)(yao)達到75%”，據長(chang)(chang)沙(sha)(sha)(sha)市(shi)(shi)(shi)城管部(bu)門統(tong)計(ji)(ji)，2021年(nian)(nian)1月(yue)至2023年(nian)(nian)5月(yue)，長(chang)(chang)沙(sha)(sha)(sha)市(shi)(shi)(shi)工(gong)(gong)程渣(zha)(zha)(zha)(zha)土(tu)(tu)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)申(shen)(shen)報(bao)量(liang)(liang)(liang)(liang)共計(ji)(ji)12700萬(wan)(wan)方(fang)，申(shen)(shen)報(bao)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)回(hui)(hui)收(shou)量(liang)(liang)(liang)(liang)6788萬(wan)(wan)方(fang)，處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)回(hui)(hui)收(shou)率53%，其中資(zi)(zi)(zi)源(yuan)化(hua)(hua)(hua)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)利(li)用(yong)(yong)(yong)(yong)(yong)總(zong)(zong)量(liang)(liang)(liang)(liang)為(wei)(wei)359.36萬(wan)(wan)方(fang)，差(cha)距(ju)很大(da)。根據《長(chang)(chang)沙(sha)(sha)(sha)市(shi)(shi)(shi)建(jian)筑垃圾治理專項規(gui)劃(2020-2035)》，用(yong)(yong)(yong)(yong)(yong)人均(jun)乘數法每(mei)(mei)年(nian)(nian)建(jian)筑垃圾(不(bu)含工(gong)(gong)程渣(zha)(zha)(zha)(zha)土(tu)(tu))產(chan)(chan)生(sheng)(sheng)(sheng)量(liang)(liang)(liang)(liang)約(yue)(yue)為(wei)(wei)1080萬(wan)(wan)噸(dun)，而2022年(nian)(nian)納(na)入住(zhu)建(jian)部(bu)門統(tong)計(ji)(ji)口徑的(de)(de)產(chan)(chan)生(sheng)(sheng)(sheng)量(liang)(liang)(liang)(liang)僅(jin)為(wei)(wei)343.17萬(wan)(wan)噸(dun)，資(zi)(zi)(zi)源(yuan)化(hua)(hua)(hua)量(liang)(liang)(liang)(liang)為(wei)(wei)307.2萬(wan)(wan)噸(dun);納(na)入統(tong)計(ji)(ji)的(de)(de)盾(dun)構(gou)(gou)土(tu)(tu)年(nian)(nian)均(jun)申(shen)(shen)報(bao)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)量(liang)(liang)(liang)(liang)約(yue)(yue)為(wei)(wei)48萬(wan)(wan)方(fang)、約(yue)(yue)80萬(wan)(wan)噸(dun)，建(jian)筑垃圾和盾(dun)構(gou)(gou)土(tu)(tu)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)量(liang)(liang)(liang)(liang)約(yue)(yue)為(wei)(wei)387萬(wan)(wan)噸(dun)，與(yu)規(gui)劃預計(ji)(ji)的(de)(de)產(chan)(chan)生(sheng)(sheng)(sheng)量(liang)(liang)(liang)(liang)差(cha)距(ju)巨(ju)大(da)，大(da)量(liang)(liang)(liang)(liang)建(jian)筑垃圾未(wei)納(na)入資(zi)(zi)(zi)源(yuan)化(hua)(hua)(hua)回(hui)(hui)收(shou)范圍。三是(shi)資(zi)(zi)(zi)源(yuan)化(hua)(hua)(hua)回(hui)(hui)收(shou)利(li)用(yong)(yong)(yong)(yong)(yong)技術(shu)不(bu)高。工(gong)(gong)程渣(zha)(zha)(zha)(zha)土(tu)(tu)資(zi)(zi)(zi)源(yuan)化(hua)(hua)(hua)利(li)用(yong)(yong)(yong)(yong)(yong)處(chu)(chu)(chu)(chu)(chu)于試驗階段(duan)，綜合(he)利(li)用(yong)(yong)(yong)(yong)(yong)方(fang)式較少、工(gong)(gong)藝(yi)簡(jian)單，缺少配套政策支(zhi)持，再生(sheng)(sheng)(sheng)產(chan)(chan)品市(shi)(shi)(shi)場(chang)(chang)(chang)應用(yong)(yong)(yong)(yong)(yong)困(kun)難。其中盾(dun)構(gou)(gou)土(tu)(tu)環(huan)保處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)場(chang)(chang)(chang)主(zhu)要(yao)(yao)是(shi)對盾(dun)構(gou)(gou)土(tu)(tu)進行(xing)無害化(hua)(hua)(hua)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)、減量(liang)(liang)(liang)(liang)化(hua)(hua)(hua)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)，由于資(zi)(zi)(zi)源(yuan)化(hua)(hua)(hua)利(li)用(yong)(yong)(yong)(yong)(yong)技術(shu)不(bu)高，粗放(fang)式加工(gong)(gong)生(sheng)(sheng)(sheng)產(chan)(chan)，仍產(chan)(chan)生(sheng)(sheng)(sheng)較高比例(li)的(de)(de)尾渣(zha)(zha)(zha)(zha)要(yao)(yao)填埋(mai)處(chu)(chu)(chu)(chu)(chu)置(zhi)(zhi)(zhi)。