【摘要】 排污许可制是我国固定污染源环境监管的基石。进入“十五五”时期，排污许可管理亟须由“覆盖式发证”转向“依证监管—治理绩效改善”的全链条治理模式。本文基于江苏省基层实践视角，构建“顶层制度—标准规范—程序机制—组织体系—平台支撑”五维诊断框架，识别出许可管理对象与管控范围界定不清且统一解释不足、排放标准选择与总量核算口径不一致、变更分流与联审联查机制薄弱、基层承载能力与第三方服务质量约束偏弱、平台稳定性与数据复用能力欠缺等关键断点。针对上述问题，提出健全统一解释与版本追溯机制、完善选标规则与因子映射工具、建立风险分级变更与条款化联审制度、强化主体责任与第三方信用约束、推动平台由表单流程型系统向具有智能验证功能的数据产品升级，以期为“十五五”时期的制度完善提供参考。更多还原

【Abstract】 China’s pollutant discharge permit( PDP) system is the cornerstone of environmental regulation for stationary sources.Entering the 15 th Five-Year Plan period( from 2026 to 2030),PDP management urgently needs to shift from the " comprehensive issuance of permits" to a full-chain governance model of " supervision based on permits, improvement of governance performance ".Drawing on frontline implementation experience in Jiangsu Province,this article develops a five-dimensional diagnostic framework covering " top-level institutional design,standards and technical specifications, procedural mechanisms, organizational capacity,and digital/platform support ". It identifies key breakpoints in the current policy chain such as unclear definition and inconsistent interpretation of regulated entities and the scope of permit control,discrepancies between emission-standard selection and total-load accounting methodologies,insufficient mechanisms for change management and for routine cross-department joint review and inspection,limited local implementation capacity coupled with weak quality and accountability constraints for third-party service providers,and inadequate platform stability and data reusability. In response,this article proposes an integrated set of improvements ∶ strengthening unified interpretation and version traceability,refining standard-selection rules and pollutant-factor mapping tools,establishing risk-based permit-change pathways and clause-based joint review,reinforcing source responsibility and credit-based governance for third parties,and driving the transformation of the platform from a form-based workflow system to a data-driven product with intelligent verification capabilities. These recommendations provide practical evidence to inform PDP system refinement during the 15 th Five-Year Plan period.更多还原