长江经济带生态保护补偿机制的进展与建议

Ecological compensation mechanism in the Yangtze River Economic Belt:progress and suggestions

近年来,多份关于推动建立长江经济带生态保护补偿机制的文件相继印发,具有以下特点:(1)通过生态补偿资金分配与生态环保工作成效的挂钩机制,调动地方政府生态环保工作积极性;(2)赋予地方政府充分自主权,鼓励地方政府依托各自特点开展生态补偿模式探索;(3)完善投入机制,集中力量解决最突出的生态环保问题;(4)鼓励建立市场化、多元化的生态补偿机制,激发地方落实生态环保工作的内生动力。根据长江经济带沿线各省市对生态补偿机制的探索实践,发现在一些环节存在不足并建议:(1)长江经济带沿线不同地区生态系统和经济发展禀赋存在差异,生态补偿工作实践进展不一,不同地方的重点工作方向亟待进一步明确。建议进一步强化长江经济带全流域意识,结合不同地方的生态系统服务功能、产业结构特点、生态资源禀赋和工作实施进展分类施策,建立分层次、分领域的梯度补偿模式。(2)生态补偿的制度依据尚未明确,中央的统筹地位亟待进一步巩固。建议健全生态补偿的法律政策基础或管理原则,完善相应权责制度,加强中央的领导核心地位,建立系统性的管理和监督考核机制。(3)生态补偿的方式较为单一,市场条件仍欠缺。建议推进多领域多层次合作,创新用水权、排污权、碳排放权的分配制度和交易方式,鼓励多方资本融入,建立起拥有公允生态补偿条件和补偿价格的生态补偿市场化体系。(4)不同地区对资金需求和使用存在差异,"平均分配"模式限制了部分资金的利用效率。建议科学划分生态补偿资金使用范围和渠道,由单一性要素补偿向基于生态功能定位的综合性补偿转变。(5)生态补偿对推进精准脱贫的支持力度有待加强。建议有机衔接生态系统服务功能和经济发展不平衡问题。

In recent years,a number of policy regulations and documents of ecological compensation mechanism in the Yangtze River Economic Belt have been released.The characteristics of them are summarized as:First,encouraging the enthusiasm of local governments for eco-environmental protection through the mechanism of ecological compensation fund allocation and effectiveness;Second,empowering local governments with greater autonomy,establishing an ecological compensation mechanism based on the characteristics of different areas;Third,improving the investment mechanism and focusing on solving the most prominent ecological and environmental problems,and providing financial support and institutional guarantee on green development in the Yangtze River Economic Belt;Fourth,encouraging the establishment of a market-oriented and diversified ecological compensation mechanism to stimulate the endogenous motivation of ecological environmental protection.According to the practices of ecological compensation mechanisms by provinces (and municipalities ) along the Yangtze River Economic Belt,it is found that there are some shortcomings on current ecological compensation mechanism and suggesting as following:First,there are differences in ecosystem and economic development in different regions along the Yangtze River,and the working progresses are in different ways.The key work directions in different places need to be further clarified.It is suggested to further strengthen the awareness of the whole basin of the Yangtze River,establish a gradient compensation model in different levels and sub-fields based on the ecosystem service functions,industrial structure characteristics,ecological resource endowments and work implementation progress classification and policy in different places.Second,the institutional basis for ecological compensation has not yet been clarified,and the overall status of central government needs to be further consolidated.It is recommended to improve the legal policy basis or management principles of ecological compensation,improve the corresponding system of powers and responsibilities,strengthen the central leadership position of the central government,and establish a systematic management and supervision and evaluation mechanism.Third,the way of ecological compensation is relatively simple,and market conditions are still lacking.It is recommended to promote multi-level cooperation,develop innovative water distribution rights,emission rights,carbon emission rights distribution systems and trading methods,encourage multi-party capital integration,and establish an ecological compensation marketization system with fair ecological compensation conditions and compensation prices.Fourth,there are differences in the demand and use of funds in different regions.The "average distribution" model limits the utilization efficiency of some funds.It is recommended to scientifically divide the scope and channels of use of ecological compensation funds,from single-factor compensation to comprehensive compensation based on ecological function positioning.Fifth,the support for ecological compensation to promote accurate poverty alleviation needs to be strengthened.It is recommended to organically link ecosystem service functions and the problem of economic development imbalances.