跨界流域生态补偿的“新安江模式”及可持续制度安排  

Transboundary ecological compensation in the Xin’an River Basin and its institutional arrangement of sustainability

作　　者：沈满洪[1,2,3] 谢慧明 SHEN Man-hong;XIE Hui-ming(School of Business,Ningbo University,Ningbo Zhejiang 315211,China;Research Institute of East China Sea,Ningbo University,Ningbo Zhejiang 315211,China;Collaborative Innovation Center for Port Economy,Ningbo University,Ningbo Zhejiang 315211,China)

机构地区：[1]宁波大学商学院,浙江宁波315211 [2]宁波大学东海研究院,浙江宁波315211 [3]宁波大学港口经济协同创新中心,浙江宁波315211

出　　处：《中国人口·资源与环境》2020年第9期156-163,共8页China Population,Resources and Environment

基　　金：国家社科基金重点项目“推进区域生态创新的财税政策体系研究--以长三角地区为例”(批准号:19AZD004),“跨界流域生态补偿的一般均衡分析及横向转移支付研究”(批准号:19AJY007)。

摘　　要：“绿水青山就是金山银山”是习近平生态文明思想的核心观点。生态补偿是实现绿水青山价值转化的重要机制。新安江流域上下游因“要保护与不保护”“要补偿与不补偿”“以河为标准与以湖为标准”的争议而引发冲突。在中央有关部门的协调下浙皖两省的谈判协商成功达成了两轮六年(2012-2017)的跨界生态补偿协议并付诸实施,成为全国首例,是“绿水青山就是金山银山”的成功典范。补偿协议的创新性在于:实现上下级补偿与上下游补偿的结合,以上下级补偿带动上下游补偿;实现生态保护补偿与环境损害赔偿的耦合,做到激励与约束的完美结合;实现上下游共同参与的水质监测机制,水质监测结果好就给予生态保护补偿,水质结果差就实施环境损害赔偿;坚持问题导向和目标导向的结合,针对饮用水的水质要求确定以高锰酸盐指数、氨氮、总氮、总磷4项指标作为监测对象。两轮试点绩效显著,安徽省生态环境保护力度明显加大,新安江出境水质明显改善。新安江跨界流域生态补偿协议之所以能够顺畅达成并持续运行,是由上游生态保护比较优势决定的必要性与下游经济发展比较优势所决定的可能性共同决定的,是由上下游共同的生态补偿制度需求与各级政府生态补偿制度供给的均衡所决定的。新安江流域跨界生态补偿试点是中国特色的生态补偿机制创新。当然,该制度也需要在多方面继续完善:实施多元补偿,调动各种资源支持生态环境保护;提高补偿标准,尽力体现上游生态环境保护的机会成本;给予多元受偿,激发各个生态环境保护主体的积极性;加强区域合作,建立黄山市经济开发区共同开发机制。The‘Two Mountains’theory is the core of Xi Jinping’s thought on ecological civilization,and ecological compensation is the main valuation mechanism of the theory.The dispute and conflict around the Xin’an River Basin were once induced by the protection of the upstream area but lack of protection in the downstream area,the demand for payment in the upstream area but lack of payment in the downstream area,and the river-based water quality standard used by the upstream area but the lake-based standard preferred by the downstream area.As a typical case of the mechanism and theory,the pilot institution of transboundary ecological compensation was firstly introduced in this basin and has been successfully implemented for six years(2012-2017)with the great efforts of both the central and local governments.The innovation of the pilot institution includes:the realization of a joint effort of the governments at all levels along and related to the Xin’an River Basin,with vertical compensation dominated by the governments at all levels followed by horizontal compensation among the governments of the river basin;the coupling of compensation for ecological protection with payment for environmental damage,implying that the incentives and constraints are jointly considered;the arrangement of co-monitoring the water quality by the governments of up-and-down stream,the result of which will determine the payment direction;the integration of local worries and targets,with the selection of permanganate,ammonia nitrogen,total nitrogen and total phosphorus four pollutants for drinking water testing indicators.It is shown that the environmental investment of AnhuiProvince has significantly increased and the transboundary water quality has been markedly improved.The achievement could be attributed to the environmental advantage in the upstream area and the economic development in the downstream area,the equilibrium of the institutional demand of the local governments and the institutional supply of the central and local governm

关 键 词：生态补偿 跨界流域 新安江模式 可持续 制度安排 

分 类 号：X321[环境科学与工程—环境工程]