环境服务付费减贫的国际经验及借鉴

Payment for ecosystem services: International lessons and implications for China

自1996年哥斯达黎加推出第一个大规模的国家环境服务付费项目PPSA以来,环境服务付费项目在世界各地不断出现和发展。虽然环境服务付费的根本目的是保护生态环境,然而由于意识到穷人可以成为环境服务的相关提供者,所以各国的环境服务付费项目试图将减贫目标纳入其中。在我国的生态补偿扶贫实践中,存在小农户参与存在障碍、补偿标准偏低、岗位型补偿作用面有限、减贫缺乏长期可持续性、缺乏有效的绩效评估和退出机制等问题。基于此,文中从贫困识别机制、多层次和差别化补偿、多元化补偿手段、对农户的生计关注和项目的绩效评估与退出机制五方面着手,分析国际上巴西、哥斯达黎加、墨西哥、厄瓜多尔和南非五国较为典型的环境服务付费减贫项目案例,总结提出可借鉴经验及需要注意的问题。在我国'生态补偿脱贫一批'的大背景下,生态补偿要想实现环境改善和减贫的双赢局面,必须基于农户的异质性特点对生态补偿机制进行进一步的精心设计。

Since Costa Rica launched the first large-scale national-wide payment for fcosystem services programme(PPSA-Programa por Pago de Servicios Ambientales)in 1996,payments for ecosystem/environmental services(PES)projects have proliferated abruptly around the world.The primary goal of PES is to protect the environment.However,many countries also included poverty reduction as one of their goals in the implementation of PES projects as they realized that the poor people can be important providers of environmental services.In China’s eco-compensation projects,some challenges emerged regarding the dual goals,i.e.the difficulty for the poor smallholders to participate in the projects,low rate of eco-compensation to have a meaningful effect of poverty reduction,limits of eco-job offer,the sustainability of poverty relief,performance assessment,and exit strategy.This paper summarized and assessed the international experience and lessons learned from five major countries(namely,Brazil,Costa Rica,Mexico,Ecuador and South Africa)of their PES projects with poverty reduction as one of its components.The assessment is based on the five dimensions,i.e.reliable poverty identification mechanism,multi-layer and differential compensating mechanism aimed at different groups,diversified means of compensation,focus on rural household livelihoods,performance evaluation and exit strategy of projects.In the Chinese context of'poverty reduction with eco-compensation as one its five major approaches,'the eco-compensation mechanism should be well designed with lessons learned from the international arena.The eco-compensation design should be based on the heterogeneity of farmer households to achieve the win-win dual goals of environmental protection and poverty reduction.