国家重点生态功能区生态补偿减贫的产权制度残缺、租金利益失衡与优化机制分析

Analysis on the Deficiency of Property Right System,Imbalance of Rent Interests and Optimizing Mechanism of Poverty Reduction by Ecological Compensation in Key National Eco-Functional Areas

生态补偿制度中经济发展权与生态产权"双重"缺位,即贫困的产生有着深刻的制度性根源。为揭示国家重点生态功能区贫困产生的理论与现实逻辑,本文着重从"租金"视角进行剖析,在此基础上进行了优化机制讨论。研究指出:国家重点生态功能区贫困产生是在资源的经济用途到生态用途的转移过程中产生的。经济发展权缺位下,生态保护的成本并没有在生态补偿中得到"平衡",且由于生态产权制度的缺位,生态补偿标准进一步偏离了资源租金价值,形成了生态补偿制度"双重"缺位下的特殊贫困现象。同时,由于"搭便车"、"寻租"等行为的存在,相对贫困问题、社会福利"隐性"损失及地区利益失衡问题,更需要引起重视。进一步的优化机制分析表明:生态补偿应将生态保护的成本与收益内部化,财政转移支付定位于提升生态保护效益较为合理,长远来看,应增强其他地区对国家重点生态功能区的横向补偿以解决地区利益失衡问题;国家重点生态功能区的生态资本化评估,理论上需要将经济成本、生态外部效益的价值综合考虑进来加以权衡。最后提出,后续需要建立和完善经济发展权、生态产权的相关法律法规,从制度上明确国家重点生态功能区生态补偿减贫的定位、标准和实施方法。

This paper points out that the absence of economic development right and ecological property right of the ecological compensation system,that is,the emergence of poverty has profound institutional roots.In order to reveal the theoretical and practical logic of poverty in national key ecological functional areas,the paper focuses on the analysis from the perspective of "rent" and further discusses the optimization mechanism.It is pointed out that the poverty in the national key ecological functional areas is generated in the process of the transfer from the economic use of resources to the ecological use.In the absence of the right to economic development,the cost of ecological protection has not been "balanced" in the ecological compensation,and because of the absence of the ecological property right system,the ecological compensation standard further deviates from the value of resource rent,forming a special poverty phenomenon in the absence of the "double" ecological compensation property right system.Due to the existence of "free riding" and "rent-seeking",there are problems of "hidden" loss of social welfare and imbalance of regional interests,to which attention should be paid.Further optimization mechanism analysis shows that ecological compensation should internalize the cost and benefit of ecological protection,fiscal transfer payment is more reasonable to improve the benefit of ecological protection,and in the long run,it should strengthen the horizontal compensation of other regions to national key ecological functional areas to solve the problem of regional interest imbalance;theoretically, the economic cost and the value of ecological external benefits need to be taken into account in ecological capitalization assessment of national key ecological functional areas.We put forward the following suggestions: we need to establish and improve the relevant laws and regulations of economic development and ecological property rights,and make clear the positioning,standards and implementation methods of ecological compensation on poverty reduction in key national ecological functional areas.