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生态补偿应明确生态优先原则
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Topic: 生态补偿应明确生态优先原则 (Read 74 times)
oooka
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生态补偿应明确生态优先原则
December 29, 2017, 05:30:14 AM
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去年,广东省分别与福建、江西两省签订了汀江-韩江和东江流域上下游横向生态补偿协议,实行“双向补偿”的原则。当上游来水水质稳定达标或改善时,广东补偿上游省份;反之,则由上游赔偿广东。近日,南都记者跟随广东省人大环资委“2017年南粤环保世纪行”活动,探访韩江和东江部分流域发现,江西、福建相关地区以及广东梅州、河源等地均采取了多项措施确实水质达标。但也存在跨省水质保护和污染监管的尺度不一致,水质交接目标难协调等问题。
跨省河流保护一直是生态保护的难点,2013年珠江上游出现重金属污染事故,导致跨省水危机,大概从那时起,这一议题逐渐进入民众视野。当时广东、广西的相关部门与水利部、环保部等联合组成应急小组,成功化解了危机。该事件后来还促成了多方合作应对突发水污染事件的工作机制。2013年,广东和湖南、广西两省区都签署了跨界河流水污染合作协议。但是,当跨省河流保护成为一个常规动作时,监管者才发现,处置突发事件相对容易,而监控日常污染这类“暗流”则存在较大困难。
南方周末2013年的一则报道对上述问题作出了分析,提到跨省河流保护主要面临的两个问题,一是地方政府往往以经济发展作为优先考虑,“不论是数据监测、污染控制,还是建设项目审批,都要被地方政府左右”。在河流保护这个问题上,显然上游地区的保护动力相对不足,毕竟生态保护会在一定程度上牺牲经济,加上污染导致的后果主要由下游地区承担,不同区域难免产生利益分歧;二是在具体策略上,不同区域还面临机制协调的问题。中山大学水资源与环境系教授陈建耀当初的疑惑颇具代表性,“最直接的问题就是污染数据的统一,究竟该用哪个部门的数据?甚至是用哪个省份的数据?”跨省河流保护的课题具有新的特点,在推进过程中面临诸多不确定性。
面对上述问题,学界给出的答案是推进生态补偿。所谓生态补偿,按照《关于加快推进生态文明建设的意见》的解释,就是科学界定生态保护者与受益者权利义务,形成生态损害者赔偿、受益者付费、保护者得到合理补偿的运行机制。这种机制通过经济补偿的方式,试图解决跨流域生态保护过程中涉及的公平性问题。
但从试点的反馈看,这一机制还存在较大的改进空间。生态补偿最终具体化为资金补偿,在实践过程中,要求达到何种生态标准,双方难免产生分歧。比如在新安江跨流域补偿的试点过程中,浙江、安徽两地对水质标准就出现了极大的争议。浙江对在千岛湖两省交界断面附近的水域划定了饮用水源保护区湖泊二类标准,提出应以湖泊类水水质为基准。安徽认为,河流水质应执行河流三类标准。同样,此次南都的报道也显示,上下游不同地区对于水质标准存在不同的期待,福建交到广东的水,只要达到了Ⅲ类水质即属合格,但广东省内考核是按照Ⅱ类水的标准,由此导致下游地区有关部门承受较大的工作压力。
最终确立的水质标准,可能是双方协商后其中一方作出妥协的结果,由此也可看出,目前的生态补偿在确定相关标准时都存在一定的弹性。如何解决这类分歧,在新安江跨流域补偿试点的过程中,财政部和环保部等牵头部门调和双方利益,为此提供了稳定的财政保障制度。但这类举措都具有个案性质,生态补偿如果要在更大范围内推广,这类“特事特办”的经验必然难以奏效。明确生态保护的标准,在此基础上明确双方权责,并且赋予其法律效力,才具有足够的说服力。
在环保部11月份例行新闻发布会上,环保部规划财务司巡视员尤艳馨提及生态保护补偿主要存在三个方面的问题,一是立法滞后,标准体系还不完善;二是补偿方式比较单一;三是上下游的利益诉求不同,导致推进难度非常大。协调利益诉求是一件困难的事,理想的解决路径应该是,先形成统一的生态保护标准,在此基础上根据不同地区的具体情况协调不同的利益诉求,毕竟生态保护是第一位的。生态补偿机制还需要经历漫长的探索,但生态优先应该是所有策略所必须明确的。
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