中国生态补偿40年:政策演进与理论逻辑

40 Years of Ecological Compensation in China:Policy Evolution and Theoretical Logic

中国生态补偿已走过40年历程,本文以生态补偿的外部性内部化理论为基础,从生态补偿的中央政策梳理入手,考察中国生态补偿的内涵与政策体系的演化。发现中国生态补偿的目标、补偿对象、补偿标准、补偿措施和补偿体制机制都呈现出不断改进的特征,大致分为生态补偿的初设阶段、形成阶段和完善阶段。初设阶段的生态补偿在个别重点领域取得显著成效,但就中国生态补偿体系而言,还不是独立的、严格意义上的生态补偿。形成阶段的特征是已建立起生态补偿重点领域的补偿体制,相关补偿政策以科学定义的生态补偿为依据,建立起与环境保护政策相区别的生态补偿政策架构。完善阶段的生态补偿已覆盖生态系统的所有重要领域,提升了生态补偿的目标,描绘出生态补偿的整体框架和完善现有生态补偿的综合改革设想。

Ecological compensation policy has been adopted and implemented in China for 40 years. Based on the theory of externality internalization, this article investigates the evolution and implication of ecological compensation policy issued by the central government. We found that the China＇s ecological compensation has a distinctive feature that can be characterized as continuous improvement in policy goal, compensation receiver, compensation standard, measurement and mechanism. The evolution of ecological compensation in China can be divided into three stages, which include initial stage, formation stage and improvement stage. During the initial stage, ecological compensation has achieved remarkable results in some key areas. However, the ecological compensation system at this stage is not independent and it cannot be rigorously classified as ecological compensation. The key feature of the formation stages is the establishment of the compensation system in key areas. During this stage, the issued compensation policy has a sound scientific foundation of ecological compensation. Also, the ecological compensation policy is differentiated from environmental protection policy. At last, all important areas of ecosystem are covered by the ecological compensation in the improvement stage. The goal of ecological compensation is improved. More importantly, a general framework of ecological compensation is descripted and comprehensive reform measures are proposed to improve the existing ecological compensation.