附录11跨省考察报告

HunanProvincialChang–Zhu–TanResource-ConservingandEnvironment-FriendlySocietyManagementCommission湖南株潭“两型社会”试验区建设管理ADBTA8421-pensationMechanismandPolicyFrameworkfortheXiangjiangRiverWatershedoftheChang–Zhu–TanCityAppendix10ProvincialStudyTourReport附录跨 报福建省生态补偿机制报ProvincialStudyReport pensationinFujian株潭两型试验区管委会亚行技援项目调研PresentedbytheResearchGroupofADBTechnicalAssistanceundertakenbytheHunanProvincialChang–Zhu–TanResource-ConservingandEnvironment-FriendlySocietyManagementCommission2015130January30,、204年12月1-20省省成对闽江九龙江和晋江流域偿工作题负责实施生态补偿工作的省发委环保厅及市环保局等单位进行了座谈交流，并进行实地察看。20日返长沙后，又去省馆、湖南家或地区的生态补偿工作进行认真研究，收获较大。总的认可在学习借鉴福建及发达国家经验的基础上着手启动湘江流、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、福建省生态补偿工作基本情Background pensationin福建省地处我国东南沿海，森林覆盖率65.95%，位居全国第一。陆地面12.14万平方公里，常住人口3774万人，分别为我省57.3%56.4%海域13.6万平方公里2013年GDP为21759.64亿元,人均GDP为57856公共财政总收入3428.76亿元，分别为我省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年以来，福建坚持以“生态立省”，2002年，成为国生态省建设试点省份，2013年提出“清新福建”品牌，2014年获批第一个全省域生态文明先行示范区围绕推进生态初步建立了具有地方特色的生态补偿机制，2013年直接安排生态补偿合计达17.5亿元。主要形成了三项制度：Since2000Fujianstartedbuildingitselfanecology-centeredprovince.Itthenbecameanationalpilotprovinceforecologyconstructionin2002.Lateronin2013,itcreatedthebrand“freshFujian”,andwasapprovedasthecountry’sdemonstrationzoneforwhole-provinceecologicaladvancementin2014.Focusingondeveloanecologicalprovince,Fujianendeavorstoexplorethepatternsofpensationinsectorssuchaswatershedandforestry,initiallysettingupthepensationmechanismwithlocalfeatures.In2013,theprovinceallocated1.75billionyuanto pensation.Threesystemshavebeenestablishedinthe（一江河流域生态福建全省陆域水系密度大大多在省内自西向东单独入海，其中流域面积在500平方里以上的有闽江、九龙江和晋江等12条。自2003年在九龙建已将试点范围扩大到闽江、晋江和洛等流域。目前，晋江、洛不跨设区市流域补偿两种。pensationmechanisminriverwatershed.TherearerichriversinFujian’sland,mostofwhichrunfromwesttoeastandindependentlyflowintotheocean.Twelverivers’watershedareaexceeds500squarekilometersandtheMinjiangRiver,JiulongjiangRiverandJinjiangRiverareonthelist.Sinceittooktheleadinlaunchingthenationalpilotfor pensationmechanismintheupstreamanddownstreamoftheJiulongjiangRiverin2003,FujianhasextendeditspilottootherwatershedssuchastheMinjiangRiver,JinjiangRiver,andLuoRiver.Thepatternsofwatershed pensationaremainlytrans-cityandtrans-districtwatershedcompensationintheMinjiangRiverandJiulongRiverandnon-trans-cityandnon-trans-districtwatershedcompensationintheJinjiangRiverandLuo

闽江、九龙江跨设区市流域补偿Trans-cityandtrans-districtwatershedcompensationintheMinjiangRiverandJiulongRiver闵江是福建省最大的河流流经三明南平36个县市区，全577公里；九龙江是第二大河流，流经龙岩、漳州和厦门13个县市区，全285公里。两江流域总面74833平方公里，约占全省陆域面62.2%，流域经济总量约占全64.5%，流域人口约占全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.500500万元1.28000上游地 下游地省省财政设立流域水环境 3亿元水质交接断面目标60%60%按项目“以奖代补40%转移支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主要特点Main一是省级层面统筹推动。九龙江域水境保专项理办《福省重流域水环境综合整治专项管理法，规范了生态偿的形式和对的配方使用程和扶重点了明确的规定。明确省发改委、省、省环保厅三部门为项，扩年7800筹金3亿元，来源为流域下的福市、厦门市各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.Theratioofthreefactorsisabout3:1:6.三是下达到具体项目。补偿主要以“以奖代。方式”下达重点用于流域的水环境综合整治工作分配。Third,fundisallocatedtospecificprojects.Thecompensationfundisallocatedasrewardstosubstitutesubsidies,whichismainlyusedforcomprehensivetreatmentofwaterenvironmentinthewatershed.Afterdistributedtocounties(districtsandcities)inthewatershed,thefundisarrangedonspecificprojectsinvolvingcomprehensivetreatmentofwaterenvironment.Theseprojectscoverindustrialpollutionremediationandcontrol,pollutionremediationofscaledlivestockbreeding,protectionplanningandtreatmentofdrinkingwatersources,etc.晋江、洛不跨设区市流域补Non-trans-cityandnon-trans-districtwatershedcompensationintheJinjiangRiverandLuo 8%的水资源量支撑了全省24%的经济总量。市2005年启动两江上游水资源保护补偿工作，制定出台了《晋江、洛上游水资源保护补偿专项管理规定关于补偿筹集，由最初的每年安排补偿专项2000万元提高到2014年每3亿元其中2.2亿元用于两江流域上游地区水资源保护补偿，由市环保局、财牵头负责；0.8亿元用于开发由市农办财牵头市级财政设立专项管理帐户，专项由下游地区根据确定的水（水利部门提供的上年度38.8%,该年3项纳11667万元要求有关（市区将本地区承担的纳入本级政的年度。关于分配及使用，0%因素切块，市里不确定具体项目，由上游县自主支配；60%以项目形式安排，主要用于纳入市级年度重点流域水环境综合整治计划的上游地区关于补偿效果，自205年以来，下达专项补偿5.7亿偿地治约46亿486“”面三类水质达标率持续保持100%，总体水质良好，基本达到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（二森林生态效益补偿机制在率先全面实施森林2001年省级财政安排启动5720万元，之后逐年增加，对424《福建省水资源费征使用管理办法等政策明生态公益林补偿列入水资源费的使用范围。2013偿排7.29亿元分配至全省4289亩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）初步建立生态保护财政转移支付制度。2012年作为主体功能区规划的重要配套措施明确按照奖补结的原则将生态保护财力转移支付分为生态保和生态保护激励对全省限制开发区和开发区因保护生态环境承担的相关支出给予适当。同时，设立“飞地经济”激励，鼓励相关地区在保护改善生态环境的基础上，制。2013年，省财政安排生态保护财力转移支付7.18亿元，其中三明、南平、龙岩、宁德所辖县(市、区)获得额占到了全省76%。Thefiscaltransferpaymentsystemforecologicalprotectionhasbeeninitiallyestablished.InOctober2012,FujianProvincialDepartmentofFinanceissuedTheFiscalTransferMethodforEcologicalProtectionofFujianProvinceasanimportantsupportingmeasuretoimplementtheplanonmainfunctionzones.Theregulationspecifiesthatinaccordancewiththeprincipleofcombinedsubsidiesandrewards,thefiscaltransferfundisclassifiedasecologicalprotectionsubsidiesandecologicalprotectionincentivefund.Accordingtotheregulation,appropriatesubsidiesshallbemadefortheexpendituresspentbyrestricteddevelopmentzonesandprohibiteddevelopmentzonesonecologicalandenvironmentalprotection.Inaddition,“enclaveeconomy”incentivefundissetuptodevelopenclaveeconomyandpromoteinteractionandcoordinateddevelopmentbetweenmountainousareasandcostalareaswhileencouragingrelevantzonestoprotectecologyandenvironment.In2013,theallocatedfiscaltransferfundof718miltoecologicalprotectionisfromprovincialfinancialassistance,ofwhich76%wasgiventothecounties,districts,andcitiesthatSanming,Nan,Longyan,andNingdeern.Mainpracticesofwatershed pensationindevelopedcountriesandregionsinEuropeandAmerica案例。如德国易北河流域补偿、Catskills（）Thereisnosuchtermas“ pensation”abroad,thecontentofwhichareactuallyincludedby“environmentalmanagement”or“ecologicalprotection”.Through pensationinthedevelopedcountriesandregionsinEuropeandAmericaaremature.Theoperationhasconvertedfromernment-orientedpatterntoamarketizationmodeunderernmentcoordination.ThisoperationmodeplaysanimportantroleinenvironmentalmanagementandhasfacilitatedabatchoftypicalcasesincludingElbeRiverwatershedcompensationinGermanyandCatskillswatershedcompensationinAmerica.Inthesecases,horizontalcompensation(i.e.developedareasmakeupforupstreamunderdevelopedareas)isadoptedtomotivateupstreamareastoprotectenvironment,andmeanwhile,fundsareraisedbasedonmarketprinciplesfromdiversifiedsources,whicharegoodexamplesfortheestablishmentofwatershed pensationmechanisminHunan.后上交国家环保部门)2000ElbeRiverwatershedcompensationElbeRiver,asacross-borderwatershed,connectstwocountrieswithitsupstreaminCzechRepublicandthemidstreamanddownstreaminGermany.Thetwocountries,throughconsultation,havereachedanagreementonjointlymanagingElbeRiverandestablishedabilateralcooperativeanizationwitheightprofessionalgroups.InElbeRiverwatershedmanagement,Germanyraisedfundsfromvarioussourcesincludingfinancialloan,researchsubsidyandsewagecharge(sewageplantscollecteddischargefeesfromresidentsandenterprises,andkeptagriponpartofthefeesbasedoncertainproportionwiththerestturnedovertonationalenvironmentalprotectiondepartment),andeconomiccompensationofdownstreamareastoupstreamareas.In2000,theEnvironmentalProtectionMinistryofGermanyallocated9millionDeutscheMarkstoCzechfortheconstructionofanurbansewagetreatmentplantattheborder,and7nationalparkswereestablishedalongElbeRiver,coveringatotalareaof1,500squarekilometers.Throughaseriesofenvironmentaltreatmentmeasures,uptillnowthewaterqualityinupperElbeRiverhasmetdrinkingwaterstandard,bringinggreateconomicandsocialbenefits.天消费40亿—50亿公升水，约90％来自于上游域的水质共花费约15亿不到水处理方案的20％。CatskillswatershedcompensationmodeinFourtofivebillionliterofwaterhasbeenconsumedinNewYorkeveryday,90%ofwhichisdbyupperCatskillsandDelawareRiver.NewYorkernmentdecidedtopurchaseecologicalenvironmentservicesinupperCatskillswatershedinordertoguaranteethewaterquality.Throughnegotiation,NewYork BureaudefinedtheresponsibilityandcompensationstandardofprotectingwaterresourcesandwaterenvironmentinupstreamanddownstreamofCatskillswatershed.Theernmentraisedcompensationfundsviacollectingsurchargesfromwaterusers,issuingNewYorkernmentbo