生态补偿的制度实践与规范重塑——基于154份地方立法文本和规范性文件的实证分析

Institutional Practice and Norms Remolding of Ecological Compensation

通过对154份生态补偿制度的地方立法文本和规范性文件进行统计分析,描述了生态补偿制度实践的时空分布、政府层级与补偿类别。在此基础上,围绕着“谁补偿谁”归纳总结出2大类、4中类、10小类三个层次的具有代表性、典型性和显示度的生态补偿制度实践类型,涉及行政发包制、目标责任制、项目制等三种内部行政行为和同级政府间的行政合同、政府与私主体间的行政合同、损失补偿、发展机会限制补偿、环境行政收费等五种外部行政行为。从逻辑上来说,包括生态补偿在内的任何一个制度都难以涵盖上述八种迥异的法律行为。为此,亟需对生态补偿制度的实践做法进行评估,考察和优化有益于生态补偿制度目的实现的实践类型。现阶段可以遵循生态补偿制度的国家立法思路,生态补偿是政府、生态环境保护受益者对生态保护者的补偿,依据的是因承担政府确定的生态保护责任和履行相关主体协商约定的生态保护义务。长远来看,生态补偿制度应当回归“补偿”,生态补偿是政府、生态环境保护受益者对因生态环境保护而使经济发展机会受到严重限制的公民、法人和有关组织给予补偿的活动,理论基础为平等发展权保障。

Through the statistical analysis of 154 local legislative and normative documents of eco-compensation system,this paper describes the temporal and spatial distribution,government levels and compensation categories of eco-compensation system practice.Focusing on the paradigm of"who compensates whom",this paper summarizes three representative,typical and distinguishable types of ecological compensation system practices,involving three kind of internal administrative acts such as administrative subcontract system,target responsibility system and project system,and five kind of external administrative acts,including administrative contracts between governments at the same level and between governments and private entities,loss compensation,development opportunity restrictions compensation,and environmental administrative charges.Therefore,it is urgent to assess the practice of eco-compensation system and to investigate and optimize the practice types that are contributing to the achievement of the system's goals.At present,we can follow the national legislative idea of eco-compensation system and determine the compensation to be paid by the governments and the beneficiaries to those who protect the ecosystem according to the responsibility for ecological protection and ecological protection obligations.In the long run,the eco-compensation system should return to"compensation",an activity in which the government and the beneficiaries give compensation to citizens,legal persons and related organizations whose opportunities for economic development have been seriously restricted.