流域多元化生态补偿分析框架:补偿主体视角
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摘要
建立多元化生态补偿机制是流域生态补偿政策的改革方向,其目的是通过在政府补偿的基础上增加市场化和社会化补偿手段,以改变当前政府公共财政补偿面临的困境,健全流域生态补偿长效机制。本文应用文献研究法、案例法、演绎推理法等研究方法,以利益相关者理论和协同理论为基础,探索流域多元化生态补偿的基本框架,为建立多元化生态补偿机制提供思路。研究认为,多元化生态补偿机制的核心在于依靠多元补偿主体,去分担一个共同的补偿量,通过协同运作,实现多渠道补偿,提高生态补偿的效率。基于"目标关联维度"的范畴,生态补偿的协同涉及到目标与效益维、时间维、空间维和途径维上的统一。利益趋同、权责体系和先定约束是能够表征生态补偿有效协同的序参量,其中,对流域生态保护所产生的公共利益趋同是协同补偿的驱动力量,相对明晰的权利和责任分担体系具有决定作用,通过法律规定、政府规制、协商达成的先定约束是最终实现补偿支付的控制参量。应在统一目标下选择和管理这些序参量,进而产生多元主体系统协同补偿效应。具体而言,补偿主体方面,可从"生态效益、经济效益和社会效益"对应利益相关者"权、责、利"的角度,把流域生态补偿主体抽象为政府、市场主体和社会公众组织三元主体。补偿标准方面,以流域生态保护成本为下限,以外溢效益为上限确定补偿标准范围,依据"共同但有区别责任""收益结构"和"能力结构"原则,从时间、空间和主体维度初步构建动态责任分担、区域责任分担和主体责任分担机制。补偿途径方面,应在政府主导下,通过对市场主体的规制和社会公众组织的引导,构建政府补偿、市场补偿、社会补偿相互耦合的多元化生态补偿模式,建立三元主体网络型协同运作机制,并需健全相关法律保障体系、资金保障体系和监管评估体系,以保障流域多元化生态补偿的顺利实施。
To establish a diversified eco-compensation mechanism is the reform orientation of the watershed eco-compensation policy with the aims of diminishing the current dilemma faced by the government public financial compensation and improving the long-term mechanism of the watershed eco-compensation by adding market-based and socialized compensation approaches on the basis of the existing government compensation. Based on the stakeholder theory and synergy theory,this study explores the basic framework of diversified watershed eco-compensation by applying the methods of literature research,case study,and deductive reasoning,so as to propose some idea for the establishment of the diversified eco-compensation mechanism. It is presented in the research that the core of the diversified eco-compensation mechanism is to share a common amount of compensation by relying on the subject of the diversified compensation so as to achieve multi-channel compensation through a coordinated operation and to improve the efficiency of the ecocompensation. On the basis of the category of ‘goal relevance dimension',the coordination of the eco-compensation involves the harmony of the objective in relation with the dimensions of benefit,time,space,and approach. The convergence of interests,the power-responsibility system,and the pre-commitment are the order parameters that can characterize the effective coordination of the eco-compensation,while among them the convergence of public interests resulting from the ecological protection of the watershed is the driving force of the synergistic compensation; the relatively clear and transparent system of rights and responsibilities sharing system plays a decisive role; and the pre-commitment established through legal provisions,government regulations,and consultation are the ultimate control parameters of the compensation payment. These order parameters should be selected and managed under the unified objective so that the synergistic compensation effect of the multi-subject system can be produced. Specifically,as for the subject of compensation,it can be abstracted as a triple subject of government,market subjects,and public organizations from the perspective of‘ecological,economic and social benefits' corresponding to the‘rights,responsibilities and benefits' of the stakeholders. In terms of the compensation criteria,according to the principle of‘common but differentiated responsibility',‘income structure'and‘capacity structure',the dynamic,regional and subject responsibility sharing systems were initially set up in the respective dimensions of time,space and subject within the range of compensation standard determined by minimum watershed ecological protection cost and maximum outflow benefit. With regards to the compensation approaches,we should construct a diversified eco-compensation mode with the coupling of government,market and social compensation,establish a network-based cooperative operation mechanism involving three subjects under the leadership of the government and through the regulation of market subjects and the guidance of public organizations,and improve the relevant legal protection system,the capital assurance system,as well as the supervision and evaluation system to ensure the smooth implementation of diversified watershed eco-compensation.
To establish a diversified eco-compensation mechanism is the reform orientation of the watershed eco-compensation policy with the aims of diminishing the current dilemma faced by the government public financial compensation and improving the long-term mechanism of the watershed eco-compensation by adding market-based and socialized compensation approaches on the basis of the existing government compensation. Based on the stakeholder theory and synergy theory,this study explores the basic framework of diversified watershed eco-compensation by applying the methods of literature research,case study,and deductive reasoning,so as to propose some idea for the establishment of the diversified eco-compensation mechanism. It is presented in the research that the core of the diversified eco-compensation mechanism is to share a common amount of compensation by relying on the subject of the diversified compensation so as to achieve multi-channel compensation through a coordinated operation and to improve the efficiency of the ecocompensation. On the basis of the category of ‘goal relevance dimension',the coordination of the eco-compensation involves the harmony of the objective in relation with the dimensions of benefit,time,space,and approach. The convergence of interests,the power-responsibility system,and the pre-commitment are the order parameters that can characterize the effective coordination of the eco-compensation,while among them the convergence of public interests resulting from the ecological protection of the watershed is the driving force of the synergistic compensation; the relatively clear and transparent system of rights and responsibilities sharing system plays a decisive role; and the pre-commitment established through legal provisions,government regulations,and consultation are the ultimate control parameters of the compensation payment. These order parameters should be selected and managed under the unified objective so that the synergistic compensation effect of the multi-subject system can be produced. Specifically,as for the subject of compensation,it can be abstracted as a triple subject of government,market subjects,and public organizations from the perspective of‘ecological,economic and social benefits' corresponding to the‘rights,responsibilities and benefits' of the stakeholders. In terms of the compensation criteria,according to the principle of‘common but differentiated responsibility',‘income structure'and‘capacity structure',the dynamic,regional and subject responsibility sharing systems were initially set up in the respective dimensions of time,space and subject within the range of compensation standard determined by minimum watershed ecological protection cost and maximum outflow benefit. With regards to the compensation approaches,we should construct a diversified eco-compensation mode with the coupling of government,market and social compensation,establish a network-based cooperative operation mechanism involving three subjects under the leadership of the government and through the regulation of market subjects and the guidance of public organizations,and improve the relevant legal protection system,the capital assurance system,as well as the supervision and evaluation system to ensure the smooth implementation of diversified watershed eco-compensation.
引文
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[23]李国平,刘生胜.中国生态补偿40年:政策演进与理论逻辑[J].西安交通大学学报(社会科学版),2018(6):101-115.
[24]王序坤.教育成本的分担原则及其选择[J].教育发展研究,1999(5):57-60.
[25]解宗方.基于三螺旋模型的国家粮食安全保障战略——以河南省为例[J].中国人口·资源与环境,2012,22(12):117-124.
[2]杨爱平,杨和焰.国家治理视野下省际流域生态补偿新思路——以皖、浙两省的新安江流域为例[J].北京行政学院学报,2015(3):9-15.
[3]王彬彬,李晓燕.生态补偿的制度建构:政府和市场有效融合[J].政治学研究,2015(5):67-81.
[4]MAYRAND K,PAQUIN M. Payment for environmental services:a survey and assessment of current schemes[J]. Journal of helminthology,2004,1(2):77-80.
[5]DEAL R L,COCHRAN B,LAROCCO G. Bundling of ecosystem services to increase forestland value and enhance sustainable forest management[J]. Forest policy&economics,2012,17(4):69-76.
[6]黄寰.论生态补偿多元化社会融资体系的构建[J].现代经济探讨,2013,381(9):60-64.
[7]COQ J F L,FROGER G,PESCHE D,et al. Understanding the governance of the PES programme in Costa Rica:a policy process perspective[J]. Ecosystem services,2015(16):253-265.
[8]张明凯,潘华,胡元林.流域生态补偿多元融资渠道融资效果的SD分析[J].经济问题探索,2018(3):58-65.
[9]巩芳.草原生态四元补偿主体模型的构建与演进研究[J].干旱区资源与环境,2015,29(2):21-26.
[10]GREGORY S,BRETT D. Addressing the collective action problem in multiple-purchaser PES:an experimental investigation of negotiated payment contributions[J]. Ecological economics,2018,144(2):36-58.
[11]中国生态补偿机制与政策研究课题组.中国生态补偿机制与政策研究[M].北京:科学出版社,2007:74-78.
[12]JENKINS W A,MURRAY B C,KRAMER R A,et al. Valuing ecosystem services from wetlands restoration in the Mississippi Alluvial Valley[J]. Ecological economics,2010,69(5):1051-1061.
[13]郑秉文.外部性的内在化问题[J].管理世界,1992(5):195-204.
[14]宋国君,金书秦,傅毅明.基于外部性理论的中国环境管理体制设计[J].中国人口·资源与环境,2008,18(2):154-159.
[15]马世骏,王如松.社会-经济-自然复合生态系统理论[J].生态学报,1984,4(1):1-9.
[16]刘青,胡振鹏.江河源区复合生态系统研究[J].江西社会科学,2007(2):250-253.
[17]陈传明.福建省梅花山国家级自然保护区公共管理研究[J].自然资源学报,2013,28(10):1674-1684.
[18]李中元,杨茂林.论“生态人”假设及其经济、社会和生态的意义[J].经济问题,2010(7):4-9.
[19]曾健,张一方.社会协同学[M].北京:科学出版社,2000:101-107.
[20]李彩红,葛颜祥.可持续发展背景的水源地生态补偿机会成本核算[J].改革,2013(11):106-112.
[21]叶谦吉,罗必良.论经济、生态、社会三效益协同增长的生态农业成长阶段[J].农业现代化研究,1988(2):13-17.
[22]欧阳志云,靳乐山.面向生态补偿的生态系统生产总值(GEP)和生态资产核算[M].北京:科学出版社,2018:69-72.
[23]李国平,刘生胜.中国生态补偿40年:政策演进与理论逻辑[J].西安交通大学学报(社会科学版),2018(6):101-115.
[24]王序坤.教育成本的分担原则及其选择[J].教育发展研究,1999(5):57-60.
[25]解宗方.基于三螺旋模型的国家粮食安全保障战略——以河南省为例[J].中国人口·资源与环境,2012,22(12):117-124.
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