生态保护补偿激励约束的结构优化与机制完善——基于模式差异与功能障碍的分析

The mode,structure and improvement of eco-compensation incentive and restraint mechanism

生态保护补偿激励约束机制是指以补偿资金为激励与约束工具,通过生态保护补偿资金分配与生态保护成效相挂钩实现激励与约束功能的一体化机制,是生态保护补偿机制的重要组成部分。其具有激励和约束生态保护行为的直接目的,以及促进生态保护利益相关者责任、权利落实的间接目的。其在实施过程中,形成了不同的模式和结构。基于此,在对机制模式和结构进行规范分析的基础上,以其功能指向为准绳探究其结构和机制障碍,具有重要的理论和现实意义。研究表明:①激励约束结构的失衡诱致激励功能变异成约束功能,责权配置失衡;②激励约束对象的错位阻碍激励约束功能向具体生态保护主体的纵向传导;③挂钩依据以及挂钩强度的不足,制约对生态保护行为和责任的激励约束力度;④绩效评价机制对生态保护成效的偏离导致挂钩依据的不合理。结构失衡、对象错位,挂钩局限与绩效评价的偏离成为制约功能实效的关键因素。生态保护补偿激励约束机制的完善,是实现激励约束生态保护和建设行为,促进生态保护利益相关者责权落实的前提。因此,建议:①调整激励约束横向结构,实现激励约束功能的均衡配置;②贯通激励约束纵向结构,使激励约束对象和资金“纵向到底”,落实生态保护主体的责任和权利;③调整挂钩依据和调节机制,科学合理地设置挂钩机制;④调整生态保护成效评价指标体系,建立整体和专项相结合的评价机制,切实反映生态保护的成效。从而,优化其结构、完善其机制,充分发挥其激励生态保护行为、约束生态保护责任承担的功能,实现其促进责权落实的目的。同时,在《环境保护法》《森林法》以及正在制定中的《生态补偿条例》等法律法规中作出相应规定。

As an important part of eco-compensation mechanisms,eco-compensation incentive and restraint mechanism is an integrated mechanism that uses compensation funds as an incentive and restraint tool,and achieves its function through restrictions on the distribution of compensation funds by the Mectiveness of ecological protections.It has the direct purpose of stimulating and restricting ecological protection behavior,as well as the indirect purpose of promoting the protection of stakeholders'responsibilities and rights.Different modes and structures are formed in its implementation process.Based on this,through a normative analysis of its pattern and structure,this paper attempts to explore its structural and mechanism obstacles from the perspective of its functional goals,which has important theoretical and practical significance.Research shows that;①The imbalance of the incentive and constraint structure induced the incentive function to mutate into the constraint function and the imbalance in the allocation of responsibilities and rights.②The misalignment of incentive and restraint objects prevented the incentive and restraint functions from being vertically transmitted to specific subjects of ecological protection.③Insufficient hooking basis and strength ected the intensity of the incentives and restrictions on ecological protection behaviors and responsibilities.④The deviation of the performance evaluation mechanism from the Mectiveness of ecological protection generated the unreasonable hooking basis.The structural imbalance of incentive constraints,object misplacement,the limitation of the hook mechanism and the deviation of the performance evaluation mechanism were the key factors that restricted the Mectiveness of the function.This paper argues that the improvement of the eco-compensation incentive and restraint mechanism is the prerequisite to realize the incentive and restraint of ecological protection and construction behavior,and to promote the implementation of the responsibility and rights of ecological protection stakeholders.Therefore,the following measures should be taken into consideration:①Adjust the horizontal structure of the incentive and restraint mechanism to achieve balanced configuration of the incentive and restraint function.②Adjust the vertical structure of the incitements and constraints to facilitate the effective management of the funds and to implement the responsibility and rights of the subjects of ecological protection.③Adjust the hook basis and adjustment mechanism to realize scientific and reasonable configuration of the hook mechanism.④Adjust the evaluation index system for ecological protection Mectiveness and establish a performance evaluation mechanism to address the general and the specific in order to electively reflect the Mectiveness of ecological protection.It is hoped that such measures could help to optimize the structure of the eco-compensation incentive and restraint mechanism,to improve its system,to give full play to its functions of stimulating ecological protection behavior and constraining the taking of ecological protection responsibility,and to achieve its purpose of implementing relevant responsibility and rights.At the same time,corresponding provisions should be made in laws and regulations such as the Environmental Protection Law,Forest Law,and Ecological Compensation Regulations.