内蒙古牧区草原生态补偿机制研究
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摘要
我国是草原大国，草地总面积达4亿多公顷，居世界第二位。但是由于近年来盲目开发和过度利用，以及全球气候变暖等因素，全国90%的草原出现不同程度的沙化、退化、盐渍化。内蒙古作为我国北方重要生态保护屏障，草地“三化”程度更为严重，草原生态环境恶化形式非常严峻。在此背景下，本文对内蒙古牧区草原生态补偿机制进行研究，以期为恢复和改善草原生态系统、促进牧区生态效益、经济效益、社会效益和谐发展提供有益借鉴和参考。
论文的主要内容和结论包括以下几方面：（1）首先对国内外草原生态补偿研究成果进行梳理和评述，根据生态学、经济学等相关理论对草原的公共物品属性、外部性以及产权特征进行分析，为草原生态补偿机制提供理论基础。（2）从我国草原退化形势、草原生态服务功能、草原战略地位分析草原生态补偿机制建立的必要性，通过分析我国财政投入力度、颁布的政策法规以及国内外成功实践案例，得出我国已经具备实施草原生态补偿机制的经济实力、政治意愿及技术保障。（3）为构建一套适合内蒙古牧区草原生态补偿机制框架，对牧区实施的京津风沙源和退牧还草两大草原生态治理工程进行评析，发现工程在实施过程中存在补偿主体单一、补偿标准过低、补偿范围偏小、投入力度偏弱以及监管体系落后等问题。（4）根据样本点数据，运用Probit模型分析牧民对实施的草原生态治理工程的满意程度，通过离散变量数学期望公式计算出牧民对退牧还草工程的受偿意愿期望均值为每年每亩137.15元。国家在制定草原生态补偿标准时不仅要考虑中央财政的投入力度，同时要兼顾牧户的损失成本。因此本研究根据调研数据，从牧户的角度出发，分析牧户的哪些因素会对补偿标准的设定产生影响，通过计量经济模型分析得出，牧民的社会、经济及生理特征等因素会影响补偿标准的设定。（5）在对牧户草原生态补偿意愿实证分析的基础上，构建草原生态补偿机制框架。通过利益相关者分析方法确定补偿主体及补偿对象。根据草原生态系统特征，分析补偿范围。借鉴国外成功经验，以机会成本确定补偿标准。在补偿保障机制上，本文提出应在法律保障机制、公众参与机制、监督管理机制以及绩效评估机制上进行强化和完善，为巩固现有实施成果和后续实施提供有力保障。（6）内蒙古牧区草原生态补偿机制的有效实施离不开配套的制度建设及相关的政策体系，在加强基础性支撑制度建设方面，本文提出要：①完善我国草原生态补偿法律体系；②构建草原行政管理部门协作机制；③强化草原生态补偿监督管理力度；④建立草原生态补偿公众参与制度；⑤大力推进绿色国民经济核算体系；⑥加强草原保护科研支撑能力建设。在完善政府补偿机制、推进市场补偿机制建设方面：①继续完善财政转移支付制度；②拓宽生态补偿资金筹集渠道；③优化生态补偿组织管理体系；④积极参与国际生态环境合作；⑤深化草原产权管理制度；⑥丰富草原生态补偿市场化运作模式；⑦调整内蒙古牧区产业格局。
China is rich in grassland resources, with a total area of more than400million hectares, rankingsecond in the world. However,90%of the nation’s grassland appeared different degree of desertification,degradation and salinization because of blind development and excessive utilization in recent years. Asan important ecological protection barrier of north China, Inner Mongolia’s grassland degradation ismore serious, the deterioration of grassland ecological environment is severe. Against such background,this paper took Inner Mongolia pastoral grassland ecological compensation mechanism as researchobject so as to restore and improve grassland ecosystem, providing institutional guarantee forharmonious development of ecological, economic and social benefits.
The content and conclusion of this research mainly includes following aspects:(1) Reviewed andcomb the grassland ecological compensation research results at home and abroad, and then analyzedpublic goods attribute, externality and property rights of grassland based on ecological, economics andother related the theories, laying a theoretical basis for the grassland ecological compensationmechanism.(2) From the aspects of grassland degradation, ecosystem services and strategic position toanalyze the necessity on the establishment of grassland ecological compensation mechanism. It isconcluded that China has owned economic strength, political will and technical support to implementgrassland ecological compensation mechanism through the analysis on China’s fiscal investment, issuedpolicies and regulations as well as successful practice both at home and abroad.(3) In order to build aframework of grassland ecological mechanism suitable for Inner Mongolia pastoral area, this paperanalyzed and assessed Inner Mongolia two pastoral ecological governance engineering of Beijing andTianjin sandstorm source control and returning grazing to grass, and found that there existed suchproblems as single compensation subjects, low compensation standard, small compensation range, weakinput and backward regulatory system.(4)This paper used Probit Model to analyze herdsmen’ssatisfaction degree on grassland ecological management project by sample data, and used discretevariable mathematic formula to calculate herdsmen’s willingness expected mean value on returninggrazing to grass project was137.15yuan per mu per year. Determining grassland ecologicalcompensation standard should not only consider central government’s investment intensity, but also takeherdsmen’s loss cost into account. This paper, based on survey data, from the perspective of herdsmen,analyzed which factors would affect grassland ecological compensation standard, and found thatherdsmen’s social, economic and physical characteristics would affect compensation standard settingthrough econometric model analysis.(5)This paper established grassland ecological compensationmechanism framework on the basis of empirical analysis, using stakeholder analysis method todetermine compensation subjects and object, analyzing compensation range according to grasslandecosystem characteristics, using opportunity cost method to determine compensation standard learned from foreign successful experience.This paper presented compensation guarantee mechanism shouldstrengthen and improve legal safeguard mechanism, public participation mechanism, supervision andmanagement mechanism as well as performance evaluation mechanism so as to consolidate the existingresults and provide effective protection for subsequent implementation.(6)The effective implementationof grassland ecological compensation mechanism of Inner Mongolia pastoral area depends onsupporting institution and relevant policy system. In terms of strengthening institutional infrastructure,this paper brings forward that firstly, improve legal system of grassland ecological compensation;secondly, build coordination mechanism in grassland administrative department; thirdly, strengthen thesupervision and management; fourthly, establish public participation system; fifthly, vigorously promotethe establishment of green national economic accounting system; sixthly, strengthen the construction ofgrassland protection research support ability. In terms of perfecting government compensationmechanism, promoting construction market compensation mechanism, we should firstly, continue toimprove the fiscal transfer payment system; secondly, broaden ecological compensation fund raisingchannels; thirdly, optimize the organization and management of ecological compensation system;fourthly, actively participate in international environmental and ecological cooperation; fifthly, deepengrassland property management system; sixthly, enrich grassland ecological compensationmarketization operation model; seventhly, adjust industry structure of Inner Mongolia pastoral area.
论文的主要内容和结论包括以下几方面：（1）首先对国内外草原生态补偿研究成果进行梳理和评述，根据生态学、经济学等相关理论对草原的公共物品属性、外部性以及产权特征进行分析，为草原生态补偿机制提供理论基础。（2）从我国草原退化形势、草原生态服务功能、草原战略地位分析草原生态补偿机制建立的必要性，通过分析我国财政投入力度、颁布的政策法规以及国内外成功实践案例，得出我国已经具备实施草原生态补偿机制的经济实力、政治意愿及技术保障。（3）为构建一套适合内蒙古牧区草原生态补偿机制框架，对牧区实施的京津风沙源和退牧还草两大草原生态治理工程进行评析，发现工程在实施过程中存在补偿主体单一、补偿标准过低、补偿范围偏小、投入力度偏弱以及监管体系落后等问题。（4）根据样本点数据，运用Probit模型分析牧民对实施的草原生态治理工程的满意程度，通过离散变量数学期望公式计算出牧民对退牧还草工程的受偿意愿期望均值为每年每亩137.15元。国家在制定草原生态补偿标准时不仅要考虑中央财政的投入力度，同时要兼顾牧户的损失成本。因此本研究根据调研数据，从牧户的角度出发，分析牧户的哪些因素会对补偿标准的设定产生影响，通过计量经济模型分析得出，牧民的社会、经济及生理特征等因素会影响补偿标准的设定。（5）在对牧户草原生态补偿意愿实证分析的基础上，构建草原生态补偿机制框架。通过利益相关者分析方法确定补偿主体及补偿对象。根据草原生态系统特征，分析补偿范围。借鉴国外成功经验，以机会成本确定补偿标准。在补偿保障机制上，本文提出应在法律保障机制、公众参与机制、监督管理机制以及绩效评估机制上进行强化和完善，为巩固现有实施成果和后续实施提供有力保障。（6）内蒙古牧区草原生态补偿机制的有效实施离不开配套的制度建设及相关的政策体系，在加强基础性支撑制度建设方面，本文提出要：①完善我国草原生态补偿法律体系；②构建草原行政管理部门协作机制；③强化草原生态补偿监督管理力度；④建立草原生态补偿公众参与制度；⑤大力推进绿色国民经济核算体系；⑥加强草原保护科研支撑能力建设。在完善政府补偿机制、推进市场补偿机制建设方面：①继续完善财政转移支付制度；②拓宽生态补偿资金筹集渠道；③优化生态补偿组织管理体系；④积极参与国际生态环境合作；⑤深化草原产权管理制度；⑥丰富草原生态补偿市场化运作模式；⑦调整内蒙古牧区产业格局。
China is rich in grassland resources, with a total area of more than400million hectares, rankingsecond in the world. However,90%of the nation’s grassland appeared different degree of desertification,degradation and salinization because of blind development and excessive utilization in recent years. Asan important ecological protection barrier of north China, Inner Mongolia’s grassland degradation ismore serious, the deterioration of grassland ecological environment is severe. Against such background,this paper took Inner Mongolia pastoral grassland ecological compensation mechanism as researchobject so as to restore and improve grassland ecosystem, providing institutional guarantee forharmonious development of ecological, economic and social benefits.
The content and conclusion of this research mainly includes following aspects:(1) Reviewed andcomb the grassland ecological compensation research results at home and abroad, and then analyzedpublic goods attribute, externality and property rights of grassland based on ecological, economics andother related the theories, laying a theoretical basis for the grassland ecological compensationmechanism.(2) From the aspects of grassland degradation, ecosystem services and strategic position toanalyze the necessity on the establishment of grassland ecological compensation mechanism. It isconcluded that China has owned economic strength, political will and technical support to implementgrassland ecological compensation mechanism through the analysis on China’s fiscal investment, issuedpolicies and regulations as well as successful practice both at home and abroad.(3) In order to build aframework of grassland ecological mechanism suitable for Inner Mongolia pastoral area, this paperanalyzed and assessed Inner Mongolia two pastoral ecological governance engineering of Beijing andTianjin sandstorm source control and returning grazing to grass, and found that there existed suchproblems as single compensation subjects, low compensation standard, small compensation range, weakinput and backward regulatory system.(4)This paper used Probit Model to analyze herdsmen’ssatisfaction degree on grassland ecological management project by sample data, and used discretevariable mathematic formula to calculate herdsmen’s willingness expected mean value on returninggrazing to grass project was137.15yuan per mu per year. Determining grassland ecologicalcompensation standard should not only consider central government’s investment intensity, but also takeherdsmen’s loss cost into account. This paper, based on survey data, from the perspective of herdsmen,analyzed which factors would affect grassland ecological compensation standard, and found thatherdsmen’s social, economic and physical characteristics would affect compensation standard settingthrough econometric model analysis.(5)This paper established grassland ecological compensationmechanism framework on the basis of empirical analysis, using stakeholder analysis method todetermine compensation subjects and object, analyzing compensation range according to grasslandecosystem characteristics, using opportunity cost method to determine compensation standard learned from foreign successful experience.This paper presented compensation guarantee mechanism shouldstrengthen and improve legal safeguard mechanism, public participation mechanism, supervision andmanagement mechanism as well as performance evaluation mechanism so as to consolidate the existingresults and provide effective protection for subsequent implementation.(6)The effective implementationof grassland ecological compensation mechanism of Inner Mongolia pastoral area depends onsupporting institution and relevant policy system. In terms of strengthening institutional infrastructure,this paper brings forward that firstly, improve legal system of grassland ecological compensation;secondly, build coordination mechanism in grassland administrative department; thirdly, strengthen thesupervision and management; fourthly, establish public participation system; fifthly, vigorously promotethe establishment of green national economic accounting system; sixthly, strengthen the construction ofgrassland protection research support ability. In terms of perfecting government compensationmechanism, promoting construction market compensation mechanism, we should firstly, continue toimprove the fiscal transfer payment system; secondly, broaden ecological compensation fund raisingchannels; thirdly, optimize the organization and management of ecological compensation system;fourthly, actively participate in international environmental and ecological cooperation; fifthly, deepengrassland property management system; sixthly, enrich grassland ecological compensationmarketization operation model; seventhly, adjust industry structure of Inner Mongolia pastoral area.
引文
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