国家重点生态功能区转移支付的政策演进、激励约束与效果分析

The policy evolution,incentive-constraint mechanism and effect analysis of transfer payment for National Key Ecosystem Function Conservation Areas

国家重点生态功能区转移支付是我国乃至全球最大的政府生态补偿项目。本文系统梳理了其形成过程、体制安排以及历年的政策变化,对政策演进、政策力度、激励约束与政策效果进行分析。研究发现,历次的政策调整从政策目标上增强了"生态文明建设""生态环境保护"导向,丰富了监测与考核的指标体系,并引入资金使用的绩效考核,有利于加强对资金用途和使用效率的监督和引导。但作为均衡性转移支付,该项资金的分配方法与生态环境保护的关联性较弱,资金在改善生态环境质量上的效果有赖于更强的激励约束机制。建议加大激励资金数量和考核制度的作用,动态完善监测和考核指标体系,并对政策效果开展全面和严谨的评估。

The government ecological compensation project is the largest project in China and even in the world.This paper systematically discusses the formation process,institutional arrangement and policy changes over the years of the transfer payment system in national key ecosystem function conservation areas,focusing on policy strength,incentive-constraint mechanism and policy effect.The research shows that the previous policy adjustments strengthened the orientation of"ecological civilization construction"and"ecological environment protection"from the perspective of policy objectives,enriched the indicator system of monitoring and assessment,and introduced the performance assessment of the use of funds,which was conducive to strengthening the supervision and guidance of the use of funds and the efficiency.However,as a balanced transfer payment,the relationship between the allocation method of the funds and the protection of the ecological environment is weak,and the effect of funds in improving the quality of the ecological environment depends on a stronger incentive-constraint mechanism.It is suggested to increase the amount of incentive funds and the role of the assessment system,dynamically improve the monitoring and assessment index system,and carry out a comprehensive and rigorous evaluation of the policy effect.