森林生态补偿机制若干重点问题研究

Discussions on Several Issues of Forest Eco-compensation Mechanism

我国森林资源有限,并且大多分布在经济欠发达地区。然而森林生态效益的受益者主要是江河中下游地区,一般属于经济较发达地区。因而如何给森林生态效益提供者实施补偿,实现生态公平,建立森林生态补偿机制显得十分必要,这也是当前国内外研究的热点问题之一。结合我国的实际情况,在研究提出我国生态补偿政策总体框架和分析评价国内外森林生态补偿研究与实践进展的基础上,对森林生态补偿机制的若干重点问题进行探讨:界定了森林生态补偿的内涵与范畴;对补偿森林类型进行分类,主要分为防护林、特种用途林两类;对森林生态补偿标准进行估算,考虑营造林的直接投入、保护森林生态功能而放弃经济发展的机会成本和森林生态系统服务功能的效益三个方面的因素;培育森林生态补偿市场化途径,加强对私人企业的激励机制,建立基金寻求国外非政府组织捐赠机构支持等办法;开征森林生态税,对征收对象、征收范围、征收依据和税率等进行研究;最后提出森林生态补偿的“三步走”战略,包括补偿基金完善阶段,补偿基金与生态税双轨并行阶段,生态税独立运行阶段。

China is a country with a vast territory and a large population but limited forest resources, which are mainly distributed in the economically less developed regions. Forest eco-compensation mechanisms hence have become a hot topic in the society. The article put forward the general framework of eco-compensation. The institutional framework of eco-compensation should be established＇among the multidepartments with different temporal and spatial scales. Based on reviewing the history of forest eco-compensation initiatives, the article makes clear the definition and scales and deeply discusses several key issues of forest eco-compensation. The main contents covered in this article are： 1） Classification of forest eco-compensation, Ecological protective forest is classified for protection forest and special- use forest. Protection forest includes four types named water conservation forest, soil protection forest, sand control forest and riparian protection forest. And specialuse forest includes ago-forest and nature reserve forest. 2） Compensation standards of forest. On the basis of specialized forest ecocompensation, the standards of compensation need to be considered the following factors： direct expense of plantation, opportunity cost for forests protection and benefits of forest ecosystem services. 3） Enlarging multiply financing channels for forest eco-compensation especially for market-based approaches. It is important to diversified the compensaffon channel via strengthening the initiatives of private enterprises, seeking the technique support of relative experts and establishing special fund donated by international NGOs. 4） Establishing ＂ecological taxation＂. The government need levy ＂Ecological Tax＂ to generate adequate and sustainable revenue for implementing the forest eco-compensation as the forest ecological services belonging to public goods. 5） ＂Three-stage＂ strategy of forest eco-compensation. It includes three steps namely： improvement stage of current system, transitional stage and abolishing stage.