主体功能区划下的生态补偿标准——基于机会成本和佛冈样域的研究

The Standard of Eco-Compensation Under Major Function Oriented Zoning:An Analysis Based on the Opportunity Cost & Sampled from Fogang County

主体功能区规划就是根据不同区域的资源环境承载能力、现有开发密度和发展潜力,将国土空间划分为优化、重点、限制和禁止四类开发区域。显然,实施这种安排需辅之以生态补偿政策,以弥补后两类区域因被限制或禁止(工业)开发而损失的经济利益。而国内现行或试行的生态补偿因数量太少、标准过低而缺乏实效性和可操作性,导致各地争相挤入重点开发区域而抗拒被定位为限制或禁止开发区域,即使被划入限制或禁止开发区域也不甘"寂寞"而设法实行变相开发。这就需要研究生态补偿的合理量化标准,通过对代际和区际公平的充分兼顾来增进主体功能区规划实施的可行性。本文基于机会均等观,运用机会成本法,通过建立生态补偿与发展机会成本的数量关系模型,提出了对生态功能区的单项与综合补偿标准并选择样区进行了实证。研究结果显示,在主体功能区划下,特定区域接受"限制"或"禁止"开发之定位安排的经济底线是所获生态补偿足以弥补因限制或放弃开发而付出的机会成本。因"限制"或"禁止"开发主要针对的是工业,则该机会成本可以理解为一地限制或放弃工业增长后所相应减少的地方财政收入及其他相关收益。据此核定的生态补偿标准才具有较大公平性和可行性。在实施中,不同地区可根据实际情况从单项(财政收入)补偿逐渐扩展至综合补偿。在此基础上,未来还可考虑纳入生态建设投入补偿和环境服务付费(PES),使生态补偿标准对各地承担生态屏障、致力可持续发展更具激励性。

According to resource and environment carrying capacity, existing development density and development potential of different regions, the major function oriented zoning divides the territory into four kinds of development zones respectively to be optimized, to be intensified, to be limited and to be prohibited. Obviously, the implementation of such a arrangement needs the ecological compensation policy to make up for the loss of economic benefits suffered by the later two kinds from being limited or giving up development （ mainly ＇ of industry＇ ）. While, the ecological compensation quantum on hand or trail is lack of efficiency and practicability because of lowquantity and standard, so that every domain-unit tries to squeeze itself into the key （i. e. to be intensified） development regions and resists being positioned as the restricted or prohibited （i. e. to be limited） ones. Even if positioned so, the two later types still try to develop by using some other methods. Thus it is necessary to research on the rational quantitative standard for ecological compensation, which can enhance the feasibility of major function oriented zoning by adequately taking into account the intergenerational and interregional fairness. Based on the concept of opportunity equalization, applying the method of opportunity cost, and through modeling quantitative relation between ecological compensation and developing opportunity cost, this paper puts forward the single and comprehensive compensation standard for ecologically functional zones, and then demonstrates it with empirical method and datum from the sample area. The research result shows that, under the major function oriented zoning, a specific area would accept the positioned arrangement of restricted or prohibited development only if it obtains such an eco-compensation quantum that can make up the opportunity cost because of being limited or giving up development. Usually industry being limited or giving up is mainly for the secondary industry, the opportunity cost so-called here can be regarded as the corresponding decreases of the local revenue and other relevant incomes. Such accordingly approved ecological compensation should be more impartial and feasible. In implementation, under actual situation, different regions can gradually extend from single （local revenue） to comprehensive compensation. On this basis and in future, we can also consider bringing ecological construction investment compensation and purchases for environmental services （PES） into it, in order to make the ecological compensation standard more incentive for a domain-unit to work as the ecological guarder and commit itself to sustainable development.