The Ministry of Ecology and Environment and the Ministry of Agriculture and Rural Affairs have jointly issued the “Implementation Plan for the Governance and Supervision of Agricultural Nonpoint Source Pollution (Trial).”

Release Date:

2021-04-09

　　Recently, the Ministry of Ecology and Environment and the Ministry of Agriculture and Rural Affairs jointly issued the “Implementation Plan for the Governance and Supervision of Agricultural Nonpoint Source Pollution (Trial)” (hereinafter referred to as the “Implementation Plan”), which sets out the overarching requirements, work objectives, and key tasks for preventing and controlling agricultural nonpoint source pollution from the 14th Five-Year Plan period through 2035, and lays out arrangements for supervising and guiding efforts to address this issue.

　　The Implementation Plan stipulates that by 2025, agricultural non-point source pollution in key regions will be brought under preliminary control, and the spatial layout of agricultural production will be further optimized. Fertilizer Pesticide Reduction efforts are advancing steadily, with the comprehensive utilization of livestock and poultry manure at small-scale operations continuing to improve, yielding significant results in green agricultural development. In pilot areas, a preliminary monitoring network has been established, and a regulatory, policy, and standards framework, along with an operational mechanism for overseeing and guiding the management of non-point source pollution in agriculture, has been largely put in place. By 2035, the load of non-point source pollution from agriculture on soil and water environments in key regions will be markedly reduced; a comprehensive monitoring network and regulatory system for agricultural non-point source pollution will be fully in place; and the level of green agricultural development will have improved substantially.
　　The Implementation Plan sets out three major tasks. First, it calls for deepening efforts to prevent and control agricultural non-point source pollution. This includes identifying priority areas for addressing such pollution, adopting region‑specific and category‑based mitigation measures, and establishing a technical database on agricultural non-point source pollution control. Second, it seeks to improve the policy framework for preventing and controlling agricultural non-point source pollution by strengthening legal and regulatory systems, refining relevant standards for pollution prevention, supervision, and monitoring, optimizing economic policies, and fostering a multi‑stakeholder governance model. Third, it aims to enhance oversight and management of agricultural non-point source pollution by conducting surveys and monitoring of pollution sources, assessing the extent to which such pollution impacts environmental quality, intensifying long-term observations, and building a robust regulatory platform.
　　Original text of the plan:
　　Implementation Plan for the Governance and Supervision of Agricultural Nonpoint Source Pollution (Trial) The governance of agricultural nonpoint source pollution is a vital component of ecological and environmental protection, bearing on the development of rural ecological civilization, national food security, and the green transformation of agriculture, as well as on the water supplies, food security, and dietary diversity of both urban and rural residents. To strengthen the governance and oversight of agricultural nonpoint source pollution, safeguard the ecological environment, ensure national food security, and promote the comprehensive green transformation of agriculture, this Implementation Plan has been formulated.
　　I. General Requirements
　　(1) Guiding Principles. Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will comprehensively implement the spirit of the 19th National Congress of the Communist Party of China and the Second, Third, Fourth, and Fifth Plenary Sessions of the 19th CPC Central Committee; earnestly put into practice Xi Jinping’s Thought on Ecological Civilization; firmly uphold the new development philosophy; and, in accordance with the decisions and arrangements of the CPC Central Committee and the State Council, wage a decisive battle against pollution. We will advance the prevention and control of agricultural non-point source pollution with a tenacious, meticulous approach, grounded in the realities of China’s “agriculture, rural areas, and farmers” work and the development needs of the new era. With the core objectives of reducing the load of agricultural non-point source pollution on soil and water environments and improving soil quality and water quality, we will adopt the fundamental principles of prioritizing key areas, implementing region-specific measures, and exercising refined management; coordinate planning and foster synergistic linkages; highlight priorities and take pilot initiatives first; optimize policies and strengthen oversight; and pursue concrete actions with sustained effort, thereby establishing a governance system and capacity for addressing agricultural non-point source pollution that ensures concerted efforts and continuous progress, thus laying a solid foundation and setting a strong start for comprehensively advancing rural revitalization and accelerating the modernization of agriculture and rural areas.
　　(II) Basic Principles
　　Coordinate overall efforts while prioritizing key areas. Integrate and advance agricultural non-point source pollution prevention and control, with… Fertilizer Pesticide Focusing on pollution control in small-scale livestock and poultry farming, with the goal of preventing and mitigating the impacts of agricultural non-point source pollution on soil and aquatic ecosystems, this effort prioritizes the Yangtze River Economic Belt and the Yellow River Basin, while also addressing the Pearl River, Songhua River, Huai River, Hai River, Liao River, and other river basins. In environmentally sensitive areas—including along main streams and major tributaries, the eastern and central routes of the South-to-North Water Diversion Project, catchment areas of lakes and reservoirs, and drinking water source zones (hereinafter referred to as “key areas”)—measures to strengthen the prevention and control of agricultural non-point source pollution will be intensified.
　　Pilot programs will be implemented first to lay a solid foundation. Based on the spatial distribution of crop and livestock production and the existing capacity for pollution prevention and control, pilot and demonstration projects for managing agricultural non-point source pollution will be carried out in key river basins, marine areas, and regions. These efforts will develop replicable and scalable governance models and management measures, while also exploring the establishment of a monitoring and assessment system for agricultural non-point source pollution.
　　Zonal governance and refined regulation. Based on the characteristics of different regions, types of pollution sources, geographical and climatic factors, and environmental protection requirements, while taking local conditions into account and respecting the wishes of rural residents, we implement a tailored approach for each zone, adopting region-specific measures. We also strengthen meticulous oversight and management to achieve precise, science-based, and law‑compliant pollution control.
　　Policy incentives and multi‑stakeholder governance. Strengthen the guiding role of policies, integrate incentive‑based measures with mandatory ones, and make full use of economic tools such as taxation and subsidies to broadly mobilize the enthusiasm of all actors in the agricultural value chain and across society, thereby fostering collaborative governance among governments, agricultural social service providers, farmers, and other stakeholders.
　　(3) Work Objectives
　　By 2025, agricultural non-point source pollution in key regions will have been brought under preliminary control. The spatial layout of agricultural production will be further optimized, Fertilizer Pesticide Waste reduction is advancing steadily, the level of comprehensive utilization of livestock and poultry manure from small-scale operations continues to improve, and significant progress has been made in green agricultural development. In pilot areas, a preliminary monitoring network for agricultural non-point source pollution has been established, and a regulatory, policy, and standards framework, along with an operational mechanism for overseeing and guiding the management of such pollution, has been largely put in place.
　　By 2035, the agricultural non-point source pollution load in key regions will be significantly reduced; a comprehensive monitoring network and regulatory framework for agricultural non-point source pollution will be fully established; and the level of green agricultural development will be markedly enhanced.
　　II. Main Tasks
　　(1) Deepen efforts to prevent and control agricultural non-point source pollution.
　　Promote the prevention and control of agricultural non-point source pollution in key regions. Based on the distribution of agricultural pollution sources, geographic and climatic conditions, and environmental quality, identify priority areas for addressing agricultural non-point source pollution. Optimize the spatial layout of agricultural production, and implement targeted management measures by zone and category in accordance with soil, water, and marine ecological protection requirements. In areas where non-point source pollution from crop production is particularly severe, implement… Fertilizer Pesticide Implement measures to reduce waste and enhance efficiency, optimize production layouts, and advance a comprehensive approach encompassing source reduction, circular utilization, process‑level interception, and end‑of‑pipe treatment. Deeply carry out initiatives for the comprehensive utilization of crop straw, prioritizing its use as fertilizer, feed, and fuel; establish a number of key counties for straw‑based resource recovery, and develop model systems for industrialized applications. Continue to promote agricultural film recycling, focusing on standardized film use, professional collection, and resource‑based reuse; strengthen the development of demonstration counties for film recovery and utilization, improve the recycling network, pilot region‑specific green compensation schemes for agricultural films, accelerate demonstrations of biodegradable film applications, and work vigorously to address white pollution in farmland. In areas where non‑point source pollution from animal husbandry is particularly severe, rationally determine livestock‑raising scales based on the land’s capacity to absorb manure, encourage the return of livestock and poultry manure to fields, foster integrated crop‑livestock cycles, and enhance soil fertility.
　　Establish a technical database for the prevention and control of agricultural non-point source pollution. Following the principles of comprehensive, all‑factor governance and menu‑style selection, focus on crop cultivation, small‑scale livestock and poultry farming, Aquaculture Focusing on pollution prevention and control in aquaculture and other sectors, a technology database for agricultural non-point source pollution control will be established through zoning and classification, based on pollution types and their primary causes. By synthesizing the outcomes of pilot projects and best practices from various regions, a set of effective models for managing agricultural non-point source pollution will be developed, scaling up from individual sites to broader applications and gradually fostering industrialization and large-scale implementation.
　　(II) Improving Policy and Mechanisms for Controlling Agricultural Nonpoint Source Pollution
　　Improve the legal and regulatory framework. Formulate or revise laws and regulations—such as those governing fertilizer management—that have a significant impact on agricultural non-point source pollution. Strengthen… Fertilizer Pesticide Provide guidance on production, operation management, and application practices to promote precision fertilization and scientifically sound pesticide use. At the provincial level, strengthen pollution control in areas with intensive small-scale livestock and poultry farming, clearly defining the pollution‑control requirements and responsibilities for farms below the designated scale. Encourage the harmless treatment of livestock and poultry manure, and, once it meets relevant standards for fertilizer utilization, facilitate its return to agricultural land. Standardize emergency response management for sudden environmental incidents to prevent the direct discharge of wastewater, waste liquids, and solid wastes into farmland during accident‑response operations.
　　Improve the standards system. Conduct timely assessments and refine relevant standards for agricultural non-point source pollution prevention and control, as well as for supervision and monitoring. Provide guidance to localities in formulating measures for managing pollution in the crop production sector, Aquaculture Standards and specifications for the discharge of aquaculture effluent. Guided by the goal of promoting the resource‑based utilization of livestock and poultry manure, we will improve the standards system for managing pollution from livestock and poultry farming and strengthen environmental supervision and management of farm operators. Irrigation water for farmland, Aquaculture Water used for aquaculture and the fertilizer‑based utilization of livestock and poultry manure shall comply with applicable standards to prevent contamination of soil, groundwater, and agricultural products.
　　Optimize economic policies. Improve policies on electricity and land use for agricultural non-point source pollution prevention and control facilities, and implement measures for the production and sale of organic fertilizer products, Fertilizer Pesticide Reduction in application and substitution with organic fertilizers Fertilizer Subsidies and tax‑reduction policies are in place. Organizations providing socialized services such as the transportation and application of livestock and poultry manure shall be supported in accordance with relevant regulations. Priority shall be given to livestock and poultry, Aquaculture Equipment for the treatment and resource utilization of agricultural waste, such as livestock manure, crop residues, and plastic mulch, has been included among the machinery supporting green agricultural development. Agricultural machinery Catalog of purchase subsidies. Explore the launch of pilot programs for point-source and non-point-source pollution‑discharge trading.
　　Establish a multi‑stakeholder governance model. In key regions, at the provincial level, develop implementation plans for the prevention and control of agricultural nonpoint source pollution, set specific targets and tasks for pollution reduction, and define clear oversight, guidance, and support measures. Promote the green distribution of agricultural inputs, empower agricultural input distributors to serve as key actors in pollution prevention and control and as information‑sharing hubs, and encourage farmers to adopt environmentally friendly, high‑efficiency fertilizers. Pesticide Through mechanisms such as procuring services from the private sector, market‑based approaches to addressing agricultural nonpoint source pollution are being advanced. Full use is being made of agricultural social service institutions and farmer cooperative economic organizations, with models like “government + association + leading enterprise + association + farmers” being promoted to strengthen professional technical management. Efforts are underway to standardize production by implementing unified production management, centralized procurement of agricultural inputs, and brand certification, thereby establishing a multi‑stakeholder governance framework that integrates government, market, and farmers.
　　(3) Strengthen the supervision and management of agricultural non-point source pollution control.
　　Conduct surveys and monitoring of agricultural pollution sources. Improve… Fertilizer Pesticide Based on the methodology for surveying and accounting usage, and building upon the work of departments such as statistics, agriculture and rural affairs, and market supervision and administration, a comprehensive understanding is being gradually established. Fertilizer Pesticide Changes in usage. By employing methods such as field surveys, ledger spot checks, and data collection via smart terminals, we have conducted… Fertilizer Pesticide Input, livestock and poultry, and Aquaculture Conduct spot checks and verification of pollutant emissions from agricultural activities. Increase the density of monitoring stations for non-point source pollution, with a focus on large and medium-sized irrigation districts and typical areas historically using wastewater for irrigation, to carry out long-term monitoring of both irrigation water quality and effluent quality, thereby gaining a comprehensive understanding of the generation and discharge of agricultural non-point source pollutants. Implement end-to-end monitoring of the return of livestock and poultry manure to farmland, and analyze and assess the patterns of nutrient and hazardous substance transformation.
　　Assess the environmental impacts of agricultural non-point source pollution. Develop technical specifications for monitoring agricultural non-point source pollution, strengthen monitoring of agricultural pollution sources, pollutant concentrations and flow rates in receiving water bodies, as well as water quality and flow in receiving waters, and establish a nationwide network for monitoring agricultural non-point source pollution. In key regions, leveraging the national surface water quality monitoring network and integrating rural environmental quality monitoring, adopt a combined approach of upgrading and retrofitting, joint construction and sharing, and new infrastructure deployment to increase monitoring stations and enhance water quality monitoring during critical periods such as heavy rainfall and flood seasons. Conduct assessments of pollutant loads entering water bodies from agricultural sources, and identify priority industries, key areas, and critical timeframes for regulatory oversight.
　　Strengthen long-term monitoring of agricultural non-point source pollution. Pilot initiatives will be launched in key water bodies, including the Jialing River, Fenhe River, Taihu Lake, Chaohu Lake, the South Four Lakes, Erhai Lake, Baiyangdian Lake, the Danjiangkou Reservoir area, and the Miyun Reservoir, to establish field‑based super‑stations for agricultural ecological environment observation. These stations will conduct long-term, on‑site observations and quantitative analyses of meteorological, hydrological, water quality, soil, and groundwater parameters, complemented by remote sensing technologies, to elucidate the spatiotemporal patterns of agricultural non-point source pollution and progressively enable dynamic assessments of its impacts on environmental quality. Furthermore, efforts will be intensified to build national agricultural science observation and experimental stations, systematically observing, monitoring, and documenting agricultural production factors and their dynamic changes, thereby providing a robust scientific foundation for the management and mitigation of agricultural non-point source pollution.
　　Establish an agricultural non-point source pollution monitoring and management platform. The system will integrate data from farmland nitrogen and phosphorus loss monitoring, surface water ecological environment quality monitoring, and rural environmental quality monitoring, enabling seamless interconnection and interoperability of monitoring data across the entire pollution chain—from source to ecosystem. Strengthen coordination and data sharing among national agricultural source surveys, ecological and environmental statistics, information on the comprehensive utilization of livestock and poultry manure, and the national pollutant discharge permit management platform. Leveraging Internet and IoT technologies, expand data acquisition channels to ensure dynamic updates. Harness the power of big data on agricultural non-point source pollution to guide pollution prevention and control, curb greenhouse gas emissions, optimize urban–rural planning and land use, and advance green agricultural development.
　　III. Pilot and Demonstration Projects
　　In alignment with the nation’s major development strategies and the overarching plan for the tough battle against pollution, and with the goal of mitigating the impact of agricultural non-point source pollution on soil and water environments in key regions, pilot projects are being carried out in selected counties and county-level cities across Guangxi, Guangdong, Hunan, Hubei, Henan, Jiangsu, Anhui, Yunnan, Jiangxi, Sichuan, Shandong, Ningxia, Hebei, Shaanxi, Jilin, and Qinghai. These pilot counties will implement comprehensive measures to address agricultural non-point source pollution and other related initiatives, while establishing a number of demonstration projects focused on pollution prevention and control, survey and monitoring, and performance evaluation.
　　(1) Establish a model for the prevention and control of agricultural non-point source pollution. Among the pilot counties, select those characterized by crop cultivation, small-scale livestock and poultry farming, Aquaculture In regions where agriculture is the primary economic activity, a number of demonstration projects for the comprehensive management of agricultural non-point source pollution will be established. The spatial layout of agricultural production will be optimized, with systematic planning and categorized treatment measures implemented to develop region-specific models for addressing agricultural non-point source pollution. Efforts will be vigorously intensified to promote integrated crop–livestock systems and eco‑circular agriculture, expand the scale of green, organic, and geographically‑indicated agricultural products, increase the supply of high‑quality, environmentally friendly agricultural goods, and enhance the quality and efficiency of agricultural development.
　　(2) Establish an agricultural non-point source pollution survey and monitoring system. Conduct surveys on agricultural non-point source pollution and analyze its causes, and carry out scientific assessments. Fertilizer Pesticide The impacts of non-point source pollution and the status of manure resource utilization are examined. Methods for identifying agricultural non-point source pollution–sensitive areas are developed, and a prioritized list of remediation zones is compiled. Typical small watersheds and nearshore marine areas with concentrated mariculture activities are selected; using ground-based monitoring combined with satellite remote-sensing techniques, the pollutant loads entering water bodies and their spatiotemporal distribution are assessed. In large and medium-sized irrigation districts such as Dujiangyan in Sichuan, Hetao in Inner Mongolia, and Qingtongxia in Ningxia, water quality monitoring for agricultural irrigation is conducted, while surface‑water quality monitoring is intensified in areas with high aquaculture density. An information platform for the regulation of agricultural non-point source pollution is established to strengthen pollution prevention and early warning systems.
　　(3) Exploring performance evaluation for agricultural non-point source pollution prevention and control. Develop and formulate methods for assessing the effectiveness of agricultural non-point source pollution control, clearly defining the scope, indicators, content, and approaches of the evaluation. Based on the results of the Second National Pollution Source Census, supplement these with baseline survey data to establish the performance‑evaluation indicators and reference values. Explore using improvements in environmental quality as the primary basis for evaluating the performance of agricultural non-point source pollution prevention and control.
　　IV. Safeguard Measures
　　(1) Strengthen organizational leadership. Improve the working mechanism of central coordination, provincial overall responsibility, and city‑ and county‑level implementation. Relevant departments shall, in accordance with the requirements of this plan, collaborate closely; the ecological and environmental authorities shall assume responsibility for supervising and guiding the control of agricultural nonpoint source pollution, and, in line with the principle of joint Party‑government accountability and dual responsibility for each post, work with the agriculture and rural affairs, development and reform, finance, water resources, forestry and grassland departments to enhance information sharing, conduct regular consultations, and carry out oversight and evaluation, thereby establishing a coordinated governance framework. Provinces shall bear overall responsibility for agricultural nonpoint source pollution control within their jurisdictions, providing organizational and policy support and ensuring effective supervision and performance assessment. Cities shall ensure seamless linkage between different levels, coordinate activities across their administrative areas, and conduct follow‑up inspections. Counties shall undertake the specific planning, organization, and implementation of related measures.
　　(2) Strengthen workforce development. Clearly designate the county- and township-level institutions and personnel responsible for supervising and guiding agricultural non-point source pollution control. Enhance the capacity of the agricultural environmental protection and agricultural technology extension systems, and encourage farmers to use agricultural inputs judiciously and adopt sustainable, green production practices. Shift the focus, resources, and support of ecological and environmental oversight and law enforcement downward to the county and township levels, ensure that grassroots ecological and environmental protection responsibilities are fulfilled, and bolster the regulatory workforce dedicated to addressing agricultural non-point source pollution. Organize training on the supervision and enforcement of agricultural non-point source pollution control to improve the capacity of frontline regulatory and law enforcement agencies.
　　(3) Increase financial investment. Establish a diversified funding framework that combines public fiscal support, self-financing by responsible entities, and participation from social capital. Relevant central departments will, through existing funding channels, provide support for local efforts to address agricultural non-point source pollution. Local authorities should allocate funds appropriately to ensure the achievement of pollution‑control targets. Local governments are encouraged to strengthen the coordinated integration of funds and projects across relevant channels in accordance with applicable regulations. Standardize public–private partnerships and guide private capital toward the prevention and control of agricultural non-point source pollution. Enhance support for green credit and green bonds in this area, with a particular focus on supporting… Fertilizer Pesticide Reducing inputs while enhancing efficiency, promoting the resourceful utilization of livestock and poultry manure, comprehensively utilizing crop residues, recycling agricultural plastic film, and treating and reusing effluent from pond aquaculture, among other measures.
　　(4) Strengthening science and technology support. Establish an expert group on agricultural non-point source pollution prevention and control, conduct long-term monitoring and regular consultations to provide technical guidance for key research and critical policy advice, and enhance technical assistance in pilot and demonstration areas. Intensify collaboration with universities and research institutions, integrate scientific and technological resources, and, through relevant national science and technology programs, accelerate joint efforts focused on technologies for the investigation, monitoring, and assessment of agricultural non-point source pollution. Concentrate resources on developing estimation models and source‑apportionment methodologies for agricultural non-point source pollution, as well as advanced automated and rapid‑response monitoring equipment, and promote the adoption of proven, practical technologies.
　　(5) Strengthen oversight. Encourage local governments at all levels to incorporate agricultural non-point source pollution prevention and control into their performance evaluation frameworks, clearly defining annual tasks and assessment indicators. Implement information disclosure, expand channels for complaints and reports, and leverage public oversight. Include key issues in agricultural non-point source pollution management within the scope of central ecological and environmental protection inspections, thereby reinforcing oversight of these critical challenges.
　　(6) Strengthen publicity and guidance. Leverage both new and traditional media to highlight the importance of preventing and controlling agricultural non-point source pollution, disseminate knowledge and technologies for pollution control, encourage public participation and oversight, enhance rural residents’ awareness and capacity for ecological and environmental protection, and foster a positive societal climate conducive to safeguarding the agricultural ecological environment.