中国生态补偿的实践及其政策取向

生态补偿是当前生态经济学界的热点问题,也是世界各国为实现可持续发展而广泛采用的政策措施。我国的生态补偿措施起始于20世纪80年代初,其发展历程大体可划分为两个阶段,即从80年代初至90年代中后期的起始阶段和90年代末以来的快速发展阶段。在起始阶段,我国主要是针对矿产开发所引起的生态环境问题及森林的公益性进行探索性补偿;在快速发展阶段,补偿范围拓展到大型生态建设工程、农村新能源、农田保护、水资源利用等方面,政府投入力度也明显加大。从当前我国的生态补偿实践看,存在的主要问题包括补偿范围过窄,融资渠道单一,补偿标准不合理和基础性支撑制度缺乏等。基于这些问题并参考相关的国际经验,本文提出了逐步完善我国生态补偿机制的政策建议,即制定科学的生态补偿优先序,建立多元化融资渠道,因地制宜确定补偿标准,使监管与评估社会化,以及逐步完善生态补偿的基础支撑制度。

Ecological Compensation Practice and Policy Orientation in China

Ecological compensation is a hot thematic in ecological economics at present.The definitions relating to ecologic compensation are various,but a few were accepted commonly.This paper present a new definition based on related references and authors' experiences.The paper deemed that ecological compensation include two folds of connotation.One is compensation for natural ecosystem,which is to reestablish damaged ecosystem and eliminate environmental pollution,such as forestation in eroded area,purification of polluted river,etc.Another is compensation for human being,which is to provide subsidies or penalty for people's behavior protecting or destructing environment,such as provision of subsidies for farmer's turning farmland into woodland or grassland,imposing taxes for polluting environment,etc.Many countries especially in developed world had implemented the measures in order to realize sustainable development.Ecological compensation practice in China began in the early 1980's.It can be divided into two stages during the last twenty years,which were beginning stage since the beginning of 1980's to the end of 1990's and developing stage from the end of 1990's.During the beginning stage ecological compensation measure only was implemented in mining and natural forest protection in part of China.It was extended into ecological protection project,renewable energy exploitation in rural China,farmland protection,water resources conservation during developing stage and the fund investment was also increased greatly.There are still many problems in ecological compensation practice in China at present.They mainly include that the compensation scope is too narrow;fund mainly come from central government and little of them is provided by public;the amount of compensation is unreasonable which induces "over compensation" in some area and "less compensation" in others;and basic support system such as enforcement of laws,rules and regulations are ineffective.Based on these problems and experiences from EU and other countries,this paper is trying to give some advices to improve China's ecological compensation practice.The policy advices included:1) To make an order of priority for ecological compensation based on Chinese economic development and eco-environment situation;2) To establish multiple-channel fund collecting system,such as environmental taxation,development of ecological product market,ecological lottery,and so on;3) To decide compensation amount according to local conditions,especially opportunity cost;4) To establish a scientific and efficient monitoring and evaluation mechanism and socialize the evaluation gradually;and 5) To improve basic institutional system for ecological compensation gradually.