附錄11跨省考察報告

HunanProvincialChang–Zhu–TanResource-ConservingandEnvironment-FriendlySocietyManagementCommission湖南株潭“兩型社會”試驗區(qū)建設管理ADBTA8421-pensationMechanismandPolicyFrameworkfortheXiangjiangRiverWatershedoftheChang–Zhu–TanCityAppendix10ProvincialStudyTourReport附錄跨 報福建省生態(tài)補償機制報ProvincialStudyReport pensationinFujian株潭兩型試驗區(qū)管委會亞行技援項目調研PresentedbytheResearchGroupofADBTechnicalAssistanceundertakenbytheHunanProvincialChang–Zhu–TanResource-ConservingandEnvironment-FriendlySocietyManagementCommission2015130January30,、204年12月1-20省省成對閩江九龍江和晉江流域償工作題負責實施生態(tài)補償工作的省發(fā)委環(huán)保廳及市環(huán)保局等單位進行了座談交流，并進行實地察看。20日返長沙后，又去省館、湖南家或地區(qū)的生態(tài)補償工作進行認真研究，收獲較大。總的認可在學習借鑒福建及發(fā)達國家經驗的基礎上著手啟動湘江流、FromDecember15through20,2014,aresearchgroupcomposedofmembersfromvariousprovincialagencies,includingtheHunanProvincialChang–Zhu–TanResource-ConservingandEnvironment-FriendlySocietyManagement(RES),DevelopmentandReformCommissionofHunanProvince,DepartmentofFinanceofHunanProvince,EnvironmentalProtectionDepartmentofHunan,WaterResourcesDepartmentofHunanProvince,Changsha,Zhuzhou,andXiangtanofficesofRES,conductedan pensationstudytourofMinjiangRiver,JiulongjiangRiver,andJinjiangRiverinFujianProvince.Theresearchgroupalsoexchangedviewswithagenciesinchargeof pensationinFujiansuchastheFujianDevelopmentandReformCommission,FujianProvincialDepartmentofFinance,FujianProvincialDepartmentofEnvironmentalProtection,andEnvironmentalProtectionBureauofQuanzhouCity,andcarriedoutfieldsurvey.AfterreturningtoChangshaonDecember20,thegroupmemberssearchedHunanLibrary,HunanNormalUniversity,andHunanAgriculturalUniversityforaseriousstudyonpensationofdevelopedcountriesandregionslikeEuropeandtheUnitedStates.ThegroupmembersgainedalotfromthefindingsandtheyconcludedthatHunanProvinceneedstocommence pensationintheXiangjiangRiverwatershedbasedonitsexistingconditionswhiledrawinglessonsfromFujiananddevelopedcountries.一、福建省生態(tài)補償工作基本情Background pensationin福建省地處我國東南沿海，森林覆蓋率65.95%，位居全國第一。陸地面12.14萬平方公里，常住人口3774萬人，分別為我省57.3%56.4%海域13.6萬平方公里2013年GDP為21759.64億元,人均GDP為57856公共財政總收入3428.76億元，分別為我省88.95%、1.57倍、1.03倍FujianisaprovinceonthesoutheastofChina.Itsforestcoverageratereaches65.95%,rankinginthecountry.Itslandcoversanareaof121,400squarekilometerswithapermanentpopulationof37.74million,equalingto57.3%and56.4%ofthatofHunan.Itsmaritimespacecomesto136,000squarekilometers.In2013,itsGDP,GDPpercapita,andpublicrevenuestoodat2.175964tril,57,856yuan,and342.876bil,being88.95%,1.57times,and1.03timesofthatofHunanrespectively.2000年以來，福建堅持以“生態(tài)立省”，2002年，成為國生態(tài)省建設試點省份，2013年提出“清新福建”品牌，2014年獲批第一個全省域生態(tài)文明先行示范區(qū)圍繞推進生態(tài)初步建立了具有地方特色的生態(tài)補償機制，2013年直接安排生態(tài)補償合計達17.5億元。主要形成了三項制度：Since2000Fujianstartedbuildingitselfanecology-centeredprovince.Itthenbecameanationalpilotprovinceforecologyconstructionin2002.Lateronin2013,itcreatedthebrand“freshFujian”,andwasapprovedasthecountry’sdemonstrationzoneforwhole-provinceecologicaladvancementin2014.Focusingondeveloanecologicalprovince,Fujianendeavorstoexplorethepatternsofpensationinsectorssuchaswatershedandforestry,initiallysettingupthepensationmechanismwithlocalfeatures.In2013,theprovinceallocated1.75billionyuanto pensation.Threesystemshavebeenestablishedinthe（一江河流域生態(tài)福建全省陸域水系密度大大多在省內自西向東單獨入海，其中流域面積在500平方里以上的有閩江、九龍江和晉江等12條。自2003年在九龍建已將試點范圍擴大到閩江、晉江和洛等流域。目前，晉江、洛不跨設區(qū)市流域補償兩種。pensationmechanisminriverwatershed.TherearerichriversinFujian’sland,mostofwhichrunfromwesttoeastandindependentlyflowintotheocean.Twelverivers’watershedareaexceeds500squarekilometersandtheMinjiangRiver,JiulongjiangRiverandJinjiangRiverareonthelist.Sinceittooktheleadinlaunchingthenationalpilotfor pensationmechanismintheupstreamanddownstreamoftheJiulongjiangRiverin2003,FujianhasextendeditspilottootherwatershedssuchastheMinjiangRiver,JinjiangRiver,andLuoRiver.Thepatternsofwatershed pensationaremainlytrans-cityandtrans-districtwatershedcompensationintheMinjiangRiverandJiulongRiverandnon-trans-cityandnon-trans-districtwatershedcompensationintheJinjiangRiverandLuo

閩江、九龍江跨設區(qū)市流域補償Trans-cityandtrans-districtwatershedcompensationintheMinjiangRiverandJiulongRiver閔江是福建省最大的河流流經三明南平36個縣市區(qū)，全577公里；九龍江是第二大河流，流經龍巖、漳州和廈門13個縣市區(qū)，全285公里。兩江流域總面74833平方公里，約占全省陸域面62.2%，流域經濟總量約占全64.5%，流域人口約占全55.8%。MinjiangRiver,thelargestriverinFujianwithalengthof577kilometers,runsthrough36counties,districts,andcitiesincludingFuzhou,Sanming,Nan,Longyan,andQuanzhou.JiulongjiangRiveris285kilometerslong,rankingsecondinFujianandflowingthrough13counties,districts,andcitiesincludingLongyan,Zhangzhou,andXiamen.Thewatershedareaofthetworiverstotals74,833squarekilometers,takingup62.2%oftheprovinciallandarea.Theeconomicaggregateandpopulationwithinthetwowatershedsoccupy64.5%and55.8%oftheprovincialtotal.500500萬元1.28000上游地 下游地省省財政設立流域水環(huán)境 3億元水質交接斷面目標60%60%按項目“以獎代補40%轉移支Diagram pensationintheMinjiangRiverandJiulongjinagRiverFivemillionyuaneachforNan,FivemillionyuaneachforNan,Sanming,Longyan,and120millionyuan’sfinancialassistancefromtheProvince80millionyuaneachforFuzhouandXiamen FundTheprovincialfinancesetsupspecialfundsof300millionyuanforwaterenvironmentalprotectioninwatersheds.Theprovincialfinancesetsupspecialfundsof300millionyuanforwaterenvironmentalprotectioninwatersheds.FundallocationintermsofAnnualassessmentresultsof sofwatershedThewatershedarea,keyecologicalfunction oftotalamountofwaterpollutantcontrol,andpopulationAnnualassessmentresultsof sofwatershedThewatershedarea,keyecologicalfunction oftotalamountofwaterpollutantcontrol,andpopulationFundFundassessmentforthetransition sectionofwaterqualityammonianitrogen,Fund60%ofsubsidiessubstitutionwithrewardsintermsofprojects40%oftransferCounties,Counties,districts,andcitiesinthe主要特點Main一是省級層面統(tǒng)籌推動。九龍江域水境保專項理辦《福省重流域水環(huán)境綜合整治專項管理法，規(guī)范了生態(tài)償的形式和對的配方使用程和扶重點了明確的規(guī)定。明確省發(fā)改委、省、省環(huán)保廳三部門為項，擴年7800籌金3億元，來源為流域下的福市、廈門市各0000,itwasplannedasawholeattheprovinciallevel.FujianProvincehasmappedoutTheManagementMeasuresonSpecialFundforWaterEnvironmentalProtectioninMinjiangRiverandJiulongjiangRiverWatershedofFujianProvinceandTheManagementMeasuresonSpecialFundforComprehensiveTreatmentofWaterEnvironmentinKeyWatershedsofFujianProvince,standardizingformsandcontentsof pensationandspecifyingdistributionmodes,usageprocedures,andkeysupportsof pensationfund.FujianDevelopmentandReformCommission,FujianProvincialDepartmentofFinance,andFujianProvincialDepartmentofEnvironmentalProtectionaredesignatedasthemainunitstoadvance pensation.FujianProvincialDepartmentofFinancesetsupspecialfundtoprotectwaterenvironmentinMinjiangRiverandJiulongjiangRiver.Suchfundhasmaintainedsteadygrowth.Thefundhasseenanincreasefrom78millionyuaninitiallyto300millionyuantillnow,with80millionyuaneachcontributedbyFuzhouCityandXiamenCity,fivemileachbyNanCity,SanmingCity,LongyanCity,andZhangzhouCityeach,andtherestbyprovincialfinancialassistance.3:1:6。Second,fundisdistributedbyfactors.Thethreefactorsare:,fixedi.e.theproportionoffourindexes,namely,watershedareaofcounties(districtsandcities),areaofkeyecologyfunctionzones,oftotalamountofwaterpollutantcontrol(thepercentageofchemicaloxygendemand(COD)inthewatershed,andpopulation;second,assessmentforthetransitionsectionofwaterquality(COD,ammonianitrogen,etc.),andthird,annualassessmentresultsofkeysofwatershedtreatment.Theratioofthreefactorsisabout3:1:6.三是下達到具體項目。補償主要以“以獎代。方式”下達重點用于流域的水環(huán)境綜合整治工作分配。Third,fundisallocatedtospecificprojects.Thecompensationfundisallocatedasrewardstosubstitutesubsidies,whichismainlyusedforcomprehensivetreatmentofwaterenvironmentinthewatershed.Afterdistributedtocounties(districtsandcities)inthewatershed,thefundisarrangedonspecificprojectsinvolvingcomprehensivetreatmentofwaterenvironment.Theseprojectscoverindustrialpollutionremediationandcontrol,pollutionremediationofscaledlivestockbreeding,protectionplanningandtreatmentofdrinkingwatersources,etc.晉江、洛不跨設區(qū)市流域補Non-trans-cityandnon-trans-districtwatershedcompensationintheJinjiangRiverandLuo 8%的水資源量支撐了全省24%的經濟總量。市2005年啟動兩江上游水資源保護補償工作，制定出臺了《晉江、洛上游水資源保護補償專項管理規(guī)定關于補償籌集，由最初的每年安排補償專項2000萬元提高到2014年每3億元其中2.2億元用于兩江流域上游地區(qū)水資源保護補償，由市環(huán)保局、財牽頭負責；0.8億元用于開發(fā)由市農辦財牽頭市級財政設立專項管理帳戶，專項由下游地區(qū)根據確定的水（水利部門提供的上年度38.8%,該年3項納11667萬元要求有關（市區(qū)將本地區(qū)承擔的納入本級政的年度。關于分配及使用，0%因素切塊，市里不確定具體項目，由上游縣自主支配；60%以項目形式安排，主要用于納入市級年度重點流域水環(huán)境綜合整治計劃的上游地區(qū)關于補償效果，自205年以來，下達專項補償5.7億償地治約46億486“”面三類水質達標率持續(xù)保持100%，總體水質良好，基本達到BothflowingthroughQuanzhouCity,theJinjiangRiverandLuoRiverboast8%waterresourcesoftheprovincebutsupport24%oftheprovincialeconomicoutput.Quanzhouinitiatedtheprotectionandcompensationofwaterresourcesintheupstreamofthetworivers,andformulatedTheManagementRegulationonSpecialFundforProtectionandCompensationofWaterResourcesintheUpstreamofJinjiangandLuoRiver.Asforcompensationfundcollection,thespecialfundhasbeenincreasedfrom20millionyuaneachyearinitiallyto300mil2014.Ofthe300millionyuan,220millionyuan,initiatedbyProtectionBureauofQuanzhouCityandBureauofFinanceofQuanzhouCity,wasusedforprotectingandcompensatingwaterresourcesintheupstream.Therest80millionyuan,initiatedbyLeadershipOfficeofRuralWorkoftheCPCQuanzhouMunicipalCommitteeandBureauofFinanceofQuanzhouCity,wasintendedforpovertyalleviationanddevelopment.Managementaccounthasbeensetupforthespecialfundgettingfinancialassistanceatmunicipallevel.Thespecialfundisallocatedaccordingtotherationofallocatedwateramountindownstreamarea(lastyear’swatersupplyreportprovidedbydepartmentsofwaterresources),asindicatestheprinciple“whoeverbenefitscompensatesandwhoeverbenefitsmorecompensatesmore”.Forexample,theproportionofwatersupplyinthedownstreamofJinjiangRiverinJinjiangCityis38.89%,sothecityshouldsubsidize116.67miltotheannual300millionyuanofwatershedcompensationfund.Relevantcounties(districtsandcities)arerequiredtoincorporatethefundthattheyneedtoprovideintotheannualbudgetattheirlevels.Intermsoffunddistributionanduse,40%offundisarrangedaccordingtofactorsinvolved,andthefundusedforspecificprojectsisnotdeterminedbythecitybutallocatedbytheupstreamcounties.Theother60%isallocatedassubsidiestothewaterresourceprotectionprojectsthatareanizedandimplementedbytheupstreamernmentsandincludedinthemunicipalannualplanoncomprehensivetreatmentofwaterenvironmentinkeywatersheds,suchasenvironmentalprotectioninfrastructure,ecologicalandenvironmentalprotection,protectionandtreatmentofdrinkingwatersources,pointsourcepollutiontreatment,andecologicaldevelopment.Aboutcompensationeffects,drivenbytheallocatedspecialcompensationfundof570 collectedsince2005,upstreamhaveinput4.6bilintothetreatmentandimplemented486treatmentprojects.Theleverageroleofcompensationmechanisminwaterresourceprotectionhasbeenwellplayed.Thefundhelpscompletionandoperationofenvironmentalprotectioninfrastructureinupstreamareas,suchassewagetreatmentfacilitiesandlandfills.Thethird-gradewaterqualityrateofthesectioninupstreamareasmonitoredbytheProvincehasremained100%.Theoverallwaterqualityisgood,andthedesiredeffectofimplementingupstreamanddownstreamcompensationmechanismhasbeenbasically（二森林生態(tài)效益補償機制在率先全面實施森林2001年省級財政安排啟動5720萬元，之后逐年增加，對424《福建省水資源費征使用管理辦法等政策明生態(tài)公益林補償列入水資源費的使用范圍。2013償排7.29億元分配至全省4289畝17其排6.9“”的占79%。Compensationmechanismofforestecologicalbenefit.TheProvincehastakentheleadinthoroughlyimplementingthecompensationofforestecologicalbenefit,andformulatingthepolicyofthedownstreamareascompensatingtheupstreamareas.Theprovincialfinanceallocatedinitialfundof57.2milin2001andthefundhasincreasedyearbyyear,endeavoringtoprotectthedesignatedecologicalpublic-welfareforestofmorethan42.94millionmu(2.862667millionhectares)attheprovinciallevelabove.Policiesandregulations,suchasTheNoticeonCompensationofDownstreamAreastoUpstreamAreasonForestEcologicalBenefit,andTheManagementMethodsonCollectionandUseofWaterResourceFeesofFujianProvince,stipulatingtheforestecologicalbenefitcompensationpolicyofdownstreamareastoupstreamareasandapplyingthepolicyintotheuseofwaterresourcefees.In2013,729millionyuanofpublicecologicalforestcompensationfundwasallocatedtotheabovedesignatedpublicecologicalforest,with17yuanallocatedpermu(0.067hectare).Ofthecompensationfund,600milisfromthecentralandprovincialfinancialassistance,andtherest129milfromfinancialdepartmentofdistrictsandcities.Inaccordancewiththeprincipleof“downstreamareascompensatingpublicecologicalforestinupstreamareas”,proportionoffundprovidedbythefinancialdepartmentsofdistrictsandcitiesisbasedonurbanwaterconsumptioninthesedistrictsandcities.Fuzhou,Xiamen,andQuanzhouinthedownstreamcollected79%ofthefund.（三）初步建立生態(tài)保護財政轉移支付制度。2012年作為主體功能區(qū)規(guī)劃的重要配套措施明確按照獎補結的原則將生態(tài)保護財力轉移支付分為生態(tài)保和生態(tài)保護激勵對全省限制開發(fā)區(qū)和開發(fā)區(qū)因保護生態(tài)環(huán)境承擔的相關支出給予適當。同時，設立“飛地經濟”激勵，鼓勵相關地區(qū)在保護改善生態(tài)環(huán)境的基礎上，制。2013年，省財政安排生態(tài)保護財力轉移支付7.18億元，其中三明、南平、龍巖、寧德所轄縣(市、區(qū))獲得額占到了全省76%。Thefiscaltransferpaymentsystemforecologicalprotectionhasbeeninitiallyestablished.InOctober2012,FujianProvincialDepartmentofFinanceissuedTheFiscalTransferMethodforEcologicalProtectionofFujianProvinceasanimportantsupportingmeasuretoimplementtheplanonmainfunctionzones.Theregulationspecifiesthatinaccordancewiththeprincipleofcombinedsubsidiesandrewards,thefiscaltransferfundisclassifiedasecologicalprotectionsubsidiesandecologicalprotectionincentivefund.Accordingtotheregulation,appropriatesubsidiesshallbemadefortheexpendituresspentbyrestricteddevelopmentzonesandprohibiteddevelopmentzonesonecologicalandenvironmentalprotection.Inaddition,“enclaveeconomy”incentivefundissetuptodevelopenclaveeconomyandpromoteinteractionandcoordinateddevelopmentbetweenmountainousareasandcostalareaswhileencouragingrelevantzonestoprotectecologyandenvironment.In2013,theallocatedfiscaltransferfundof718miltoecologicalprotectionisfromprovincialfinancialassistance,ofwhich76%wasgiventothecounties,districts,andcitiesthatSanming,Nan,Longyan,andNingdeern.Mainpracticesofwatershed pensationindevelopedcountriesandregionsinEuropeandAmerica案例。如德國易北河流域補償、Catskills（）Thereisnosuchtermas“ pensation”abroad,thecontentofwhichareactuallyincludedby“environmentalmanagement”or“ecologicalprotection”.Through pensationinthedevelopedcountriesandregionsinEuropeandAmericaaremature.Theoperationhasconvertedfromernment-orientedpatterntoamarketizationmodeunderernmentcoordination.ThisoperationmodeplaysanimportantroleinenvironmentalmanagementandhasfacilitatedabatchoftypicalcasesincludingElbeRiverwatershedcompensationinGermanyandCatskillswatershedcompensationinAmerica.Inthesecases,horizontalcompensation(i.e.developedareasmakeupforupstreamunderdevelopedareas)isadoptedtomotivateupstreamareastoprotectenvironment,andmeanwhile,fundsareraisedbasedonmarketprinciplesfromdiversifiedsources,whicharegoodexamplesfortheestablishmentofwatershed pensationmechanisminHunan.后上交國家環(huán)保部門)2000ElbeRiverwatershedcompensationElbeRiver,asacross-borderwatershed,connectstwocountrieswithitsupstreaminCzechRepublicandthemidstreamanddownstreaminGermany.Thetwocountries,throughconsultation,havereachedanagreementonjointlymanagingElbeRiverandestablishedabilateralcooperativeanizationwitheightprofessionalgroups.InElbeRiverwatershedmanagement,Germanyraisedfundsfromvarioussourcesincludingfinancialloan,researchsubsidyandsewagecharge(sewageplantscollecteddischargefeesfromresidentsandenterprises,andkeptagriponpartofthefeesbasedoncertainproportionwiththerestturnedovertonationalenvironmentalprotectiondepartment),andeconomiccompensationofdownstreamareastoupstreamareas.In2000,theEnvironmentalProtectionMinistryofGermanyallocated9millionDeutscheMarkstoCzechfortheconstructionofanurbansewagetreatmentplantattheborder,and7nationalparkswereestablishedalongElbeRiver,coveringatotalareaof1,500squarekilometers.Throughaseriesofenvironmentaltreatmentmeasures,uptillnowthewaterqualityinupperElbeRiverhasmetdrinkingwaterstandard,bringinggreateconomicandsocialbenefits.天消費40億—50億公升水，約90％來自于上游域的水質共花費約15億不到水處理方案的20％。CatskillswatershedcompensationmodeinFourtofivebillionliterofwaterhasbeenconsumedinNewYorkeveryday,90%ofwhichisdbyupperCatskillsandDelawareRiver.NewYorkernmentdecidedtopurchaseecologicalenvironmentservicesinupperCatskillswatershedinordertoguaranteethewaterquality.Throughnegotiation,NewYork BureaudefinedtheresponsibilityandcompensationstandardofprotectingwaterresourcesandwaterenvironmentinupstreamanddownstreamofCatskillswatershed.Theernmentraisedcompensationfundsviacollectingsurchargesfromwaterusers,issuingNewYorkernmentbo