基于成本分析的西部生态补偿法律机制研究

建立和实施西部生态补偿机制,是加强西部生态建设和强化西部生态功能专业化服务的必由之路。生态系统服务补偿理论和自然资本理论为我们分析西部生态补偿提供了新的分析范式,西部生态补偿包括国家补偿、区域和流域补偿、自力补偿三个层次。其内部的成本关系包括生态服务利用成本关系、跨区域资源调配成本关系、生态工程实施成本关系、内部补偿成本关系等,基于成本分析基础上的三层次补偿关系协同发展是完善西部生态补偿法律机制的基本内容。

生态保护及其利益补偿的法理判断——基于生态系统服务价值的法理解析

在人类与生态系统所缔结的自然法契约中,存在两大服务本体利益即生态系统的本位利益与生态系统的社会利益的对峙。生态系统的服务功能有着资源型商品属性和生态型公共物品属性,决定了社会法中的生态保护利益及其补偿的性质有三类,即公益性、私益性和公私益竞合性。将生态保护利益及其补偿关系从初始自然契约关系转化为实证社会契约关系的关键是找出能够标识生态保护利益补偿类型发生转变的客观尺度。有三个资源生态属性标准能够反映这一补偿转变和量化“补偿性质”限度,即资源经济生产力标准、资源生态生命力标准和生态系统区域安全标准。生态保护及其利益补偿的法理判断对实证环境法的发展具有积极的促进作用。

Current Status and Future Trends for Eco-compensation in China

Eco-compensation, known as payment for ecosystem services, is defined in China as an institutional arrangement for regulating the relationship of economic interests among ecological protectors, beneficiaries and destructors in order to protect ecological service function and foster harmony between people and nature with non-market and market tools including transfer payment, taxes and fees. Reasonable compensation to ecological service providers significantly contributes to the protection of ecological assets and effective supply of ecological services by adopting transfer payments or market transactions on the basis of comprehensively considering the costs of ecological protection, costs of development opportunity and ecological service values. It is helpful for implementing a strategy for main functional areas. The building of eco-compensation mechanisms is therefore highly valued as the most important institutional guarantee for promoting the ecological civilization. Existing ecocompensation mechanisms mainly fall into three categories： exchequer based transfer payment, vertical and horizontal, and market based compensation in China. The institutional framework has been primarily established, inclusive of a forest ecological benefit compensation fund system, grassland eco-compensation system and transfer payment system of national key ecological function areas. Under the framework, various areas and departments have actively explored the building of an eco-compensation system and achieved important progress for forests, grassland, wetlands, river basins and water resources, exploitation of mineral resources, oceans and national key ecological functions areas. However, the eco-compensation system dominated by vertical transfer payments is still far from perfect in China. The interest regulation pattern of ＂developer to protect and beneficiary to compensate＂has not been formed. Its role in the protection of the ecological environment has not been brought into full play. China should improve eco-compensation systems by intensifying eco-compensation inputs, strengthening government responsibility, diversifying eco-compensation tools, and establishing institutional systems.

Payments for Grassland Ecosystem Services:A Comparison of Two Examples in China and Germany

目前,草地生态系统退化成为全球关注的问题。生态补偿机制(PES)是为了草地生态系统的恢复/保护,采取补贴或支付费用的方式,改变使用者资源利用方式的制度安排。科学、合理的生态补偿制度需要全面地考虑可能出现的风险和挑战:如环境效益的滞后性,不可预见的监督、管理成本和社会经济目标(足额补偿标准、公平)的实现。本文的目标是通过中德两国生态补偿措施的对比(选取中国内蒙古锡林郭勒盟,德国勃兰登堡州为案例区域进行研究),为今后中德两国的生态补偿理论和实践提供依据。研究着重以下四个方面进行分析:中德两国生态补偿的实施框架,目标人群,实施效果评估等。研究结果表明,由于缺乏有效的激励机制,农户作为最基层的执行单位和实施者,其参与的主动性不够,中德两国生态补偿措施实施的成效有待提高。基于研究结果,提出了今后生态补偿项目设计中,中国应侧重于项目实施的监控和管理制度;而德国应在空间目标规划和具体管理措施和方式等方面进行完善。