生態(tài)保護(hù)紅線制度創(chuàng)新研究

項目背景Background1研究分析Analysis2政策建議PolicyRecommendations3

實施建議

ImplementationPriorities4匯報提綱Contents第一頁，共19頁。GlobalclimatechangeIrrationalhumanactivities1.Landreclamation2.Deforestation3.Overgrazing4.Disorderedmining5.Predatoryfishing6.Improperirrigation…………Eco-functionsimpaired1.Biodiversity2.Waterconservation3.Conservingwaterandsoilresources4.Windpreventionandsandfixation5.Floodwaterregulation…………Aseriesofeco-problems1.Sharpdeclineinbiodiversity2.Waterandsoilerosion3.Grasslanddeterioration4.Desertification5.Frequencyofdroughtsandfloods…………Theecologicaldegradationtrendhasn’tbeenreversed

andnationalecologicalconditionisgrim.EcologicalDegradationEcologicalSupport

對于保障國家生態(tài)安全具有重要戰(zhàn)略意義EcologyStrategicallyimportantfornationalsecurity生態(tài)退化總體趨勢尚未扭轉(zhuǎn)，國家生態(tài)安全形勢嚴(yán)峻氣候變化、人為干擾生態(tài)功能受損生態(tài)問題突出生態(tài)退化生態(tài)支撐I.項目背景Background—TheEcologyProblem第二頁，共19頁。八、VigorouslyadvancingecologicalcivilizationconstructionStrivetobuildabeautifulChina

andachievesustainabledevelopmentofChinesenation.

improvelanddevelopmentprogramPromotetheintensivenessandefficiencyofproductionspace,thelivabilityoflivingspace

andgracefulnessofeco-spaceBuildascientificandreasonableurbanizationpattern,agriculturedevelopmentpatternandecologicalsafetypattern.優(yōu)化國土空間開發(fā)格局，構(gòu)建生態(tài)安全格局HuJintao’sreportat18thPartyCongressPlanningtheecologicalredlineisthebasisandpremiseofoptimizinglanddevelopmentprogram,buildingecologicalsecurityprogramandabeautifulChina.（美麗中國）drawandobservetheecologicalredlineandwhoevertransgresstheboundswouldbepunished.劃定并嚴(yán)守生態(tài)紅線，不越雷池一步。ImportantAddress2013.11.9ThirdPlenarySessionWeshoulddrawecologicalredline,implementthepaiduseofresources

andecologicalcompensationsystemandreformmanagementsystemofecologicalenvironmentprotection.劃定生態(tài)保護(hù)紅線，改革生態(tài)環(huán)境保護(hù)管理體制I.項目背景Background—GovernmentDirection第三頁，共19頁。I.項目背景Background六個產(chǎn)出SixRequiredSPSProducts確定定義與特征提出新的制度體系提出制度構(gòu)成確定基本原則提出生態(tài)補(bǔ)償?shù)闹饕緩教岢錾鷳B(tài)保護(hù)紅線路線圖DefineEcologicalProtectionRedline(EPRL),outcomesandcharacteristicsProposenewInstitutionalregimeProposeInstitutionalcomponentsIdentifyfoundationalprinciplesOutlineessentialpartsofapproachtoeco-compensationIdentifyaRoadmap第四頁，共19頁。II.研究分析Analysis面臨挑戰(zhàn)WhatarethePresentChallenges紅線多、機(jī)構(gòu)多、缺乏協(xié)調(diào)缺乏劃定標(biāo)準(zhǔn)概念、內(nèi)涵與實踐認(rèn)識不統(tǒng)一缺乏協(xié)調(diào)機(jī)制缺乏實施方案知識儲備不足ManyLines&agencies,

NoAgreement,Nocoordination

Nomanagementstandards&enforcementNoAgreementonEPRLconcept,characteristicsorpracticalapplicationNocoordinationmechanismNoagreedimplementationapproachesKnowledgeisinsufficient第五頁，共19頁。國內(nèi)外經(jīng)驗National&InternationalExperience

China:Goodbutisolatedinitiatives.e.g.ShenzenInternationalBestPractice:IntegratedlanduseplanningtoidentifyconservationlandsParkshavelaws,budgets&systematicplansEffectiveCoordinationbetweenministriesTransparentAdministration&SocietyEngagedClearRules,Monitoring&Enforcement國內(nèi):部分地區(qū)開展很好實踐，如：深圳國際:通過土地利用規(guī)劃明確保護(hù)地國家公園有法律、預(yù)算和系統(tǒng)規(guī)劃有效的部門協(xié)調(diào)機(jī)制透明管理和社會參與明確的管理辦法、監(jiān)測與執(zhí)行體系II.研究分析Analysis第六頁，共19頁。主要結(jié)論Conclusions生態(tài)退化對生態(tài)文明建設(shè)帶來嚴(yán)重威脅生態(tài)文明建設(shè)為生態(tài)保護(hù)提供了良好機(jī)遇迫切需要明確責(zé)任主體、改革體制和制度生態(tài)保護(hù)紅線制度是生態(tài)文明建設(shè)的重要內(nèi)容。EcologicaldamageThreatenspathtoanEcologicalCivilizationTheReformProcessisanOpportunityNeedtoClarifyResponsibilitiesandReformInstitutionsEcologicalProtectionRedliningConfirmedasCriticalComponentsofanEcologicalCivilizationII.研究分析Analysis第七頁，共19頁。生態(tài)保護(hù)紅線需求EPRL:Whatneedstobedone明確定義制定規(guī)則澄清土地利用問題明晰制度目標(biāo)處理好保護(hù)地問題社區(qū)參與停止保護(hù)區(qū)域開發(fā)活動提供激勵機(jī)制AgreetooneDefinitionDealwithLackofRulesAddressLandUseIssueResolvethelackofInstitutionalFocusDealwiththeProtectedAreasProblemsEnablecommunitiesFreezedevelopmentinkeyareastoprotectoptionsProvideIncentivesII.研究分析Analysis第八頁，共19頁。III.政策建議PolicyRecommendationsSetdefinitionandcharacteristicsofecologicalprotectionredlinesinlawReformspatial,land-useplanningandmarine-useplanningsystemstoincludeEPRLsEstablishnewnationalcoordinatingmechanismsforecologicalconservationandformonitoringandcomplianceRenewandexpandanationalProtectedAreassystemDesignandimplementanationalprogramofpaymentforperformanceinEPRL完善和明確生態(tài)保護(hù)紅線的內(nèi)涵與體系構(gòu)成完善空間規(guī)劃體系，明確劃定生態(tài)保護(hù)紅線建立自然生態(tài)保護(hù)協(xié)調(diào)機(jī)制完善自然保護(hù)地體系，將生態(tài)保護(hù)紅線與保護(hù)地體系整合，建立生態(tài)保護(hù)紅線分部門、分類、分級管理機(jī)制生態(tài)保護(hù)紅線為基礎(chǔ)，完善生態(tài)補(bǔ)償制度和激勵機(jī)制第九頁，共19頁。1完善和明確生態(tài)保護(hù)紅線的內(nèi)涵與體系構(gòu)成1Definitionandcharacteristicsofecologicalprotectionredlines明確界定生態(tài)保護(hù)紅線的內(nèi)涵。生態(tài)保護(hù)紅線是指為維護(hù)國家和區(qū)域生態(tài)安全及經(jīng)濟(jì)社會可持續(xù)發(fā)展，提升生態(tài)功能、保障生態(tài)系統(tǒng)服務(wù)持續(xù)供給必須嚴(yán)格保護(hù)的最小空間范圍。生態(tài)系統(tǒng)服務(wù)包括水源涵養(yǎng)、土壤保持、防風(fēng)固沙、洪水調(diào)蓄以及災(zāi)害防護(hù)功能等。生態(tài)保護(hù)紅線構(gòu)成。生態(tài)系統(tǒng)服務(wù)保障線、人居環(huán)境安全保障線和生物多樣性保護(hù)線。Anecologicalprotectionredline(EPRL)definestheminimumspatialareawithinwhichstrictdevelopmentcontrolsensuresustainableprovisionofecosystemservicesvitalfornationalandregionaldevelopment.EPRLincludesnaturalandconstructedecosystems,terrestrial,freshwaterandmarine,anddegradedareaswithpotentialforecologicalrestorationtovaluablehealth.Theecosystemsmaybelocatedinruralorurbansettings.Ecologicalprotectionredlinesincludethreecomponents:EcosystemServicesProtectionline,LivingEnvironmentSecurityProtectionlineandBiologicalDiversityProtectionline.第十頁，共19頁。確定生態(tài)保護(hù)紅線國家目標(biāo)。建議將國土面積的35%的區(qū)域確定為國家生態(tài)保護(hù)紅線，保護(hù)生態(tài)系統(tǒng)服務(wù)重要區(qū)域與生態(tài)高敏感區(qū)，保障國家生態(tài)安全。盡快制定《生態(tài)保護(hù)紅線管理辦法》。Establishanationaltargetof35%ofChina’slandareatobewithinanEPRLonthebasisofecologicalproblems,ecologicalsensitivityandimportantspatialcharacteristicsofecosystemservicesinChina.StateCounciltoissueManagementmeasuresasregulationstoensurefullimplementation.1完善和明確生態(tài)保護(hù)紅線的內(nèi)涵與體系構(gòu)成1Definitionandcharacteristicsofecologicalprotectionredlines第十一頁，共19頁。2完善空間規(guī)劃體系，明確劃定生態(tài)保護(hù)紅線2ReformspatialplanningsystemstoincludeEPRLs土地利用規(guī)劃體系中增設(shè)生態(tài)用地類型。在現(xiàn)有的土地利用規(guī)劃體系中，增設(shè)生態(tài)用地類型，形成包括農(nóng)業(yè)用地、建設(shè)用地、生態(tài)用地與未利用地四個類型的新的土地利用規(guī)劃分類體系。Establishanewterrestrialland-usecategorytoprotectas“EcologicalLands”thoselandsthathavethedominantfunctionofprovidingecosystemservices.Formanewintegratedlanduseplanningandspatialplanningsystemandnewcategoriesoflanddesignations.第十二頁，共19頁。將生態(tài)保護(hù)紅線納入各類空間規(guī)劃。建議在國土規(guī)劃、土地利用規(guī)劃、城鄉(xiāng)規(guī)劃等空間規(guī)劃中，明確劃定生態(tài)保護(hù)紅線。海洋空間規(guī)劃中劃定海洋生態(tài)保護(hù)紅線。通過海洋生態(tài)功能區(qū)劃和海洋其他空間規(guī)劃，確定海洋生態(tài)保護(hù)紅線，維護(hù)海洋生態(tài)健康和生態(tài)安全。Onceecologicallandshavebeenidentified,itwillbeimportanttoensurethattheyareappropriatelymanaged.Inmany,butnotall,instances,itmaybeappropriatetoincorporatetheseecologicallandsintoChina’sprotectedareasystem.EstablishasimilarapproachtonationalmarinespatialplanningundertakenthroughChina’soceanzoning,orbydedicatedEPRLinitiatives.2完善空間規(guī)劃體系，明確劃定生態(tài)保護(hù)紅線2ReformspatialplanningsystemstoincludeEPRLs第十三頁，共19頁。3建立自然生態(tài)保護(hù)協(xié)調(diào)機(jī)制3Establishnewnationalcoordinatingmechanisms制定國家生態(tài)保護(hù)戰(zhàn)略與政策。從保護(hù)目標(biāo)、空間架構(gòu)、保護(hù)措施、保護(hù)政策等方面制定國家生態(tài)保護(hù)戰(zhàn)略與政策。實施統(tǒng)一協(xié)調(diào)與管理國家自然保護(hù)地。統(tǒng)一對我國自然保護(hù)區(qū)、國家公園、生態(tài)功能保護(hù)區(qū)等主要類型自然保護(hù)地進(jìn)行管理。Stateecologicalconservationpolicy:developasingleintegratednationalecologystrategyandpolicies.EPRLoversight,coordinationandfacilitation.OverseeandcoordinatetheworktodevelopasingleintegratednationalProtectedAreassystemplanandmanagementapproach.第十四頁，共19頁。生態(tài)保護(hù)紅線監(jiān)督與報告。對生態(tài)保護(hù)紅線區(qū)域生態(tài)保護(hù)狀況進(jìn)行定期監(jiān)測與評估,定期報告生態(tài)保護(hù)紅線區(qū)域生態(tài)環(huán)境狀況、變化與問題。規(guī)劃、組織區(qū)域重大生態(tài)建設(shè)與恢復(fù)工程。統(tǒng)一實施區(qū)域重大生態(tài)建設(shè)與恢復(fù)工程，保障生態(tài)保護(hù)紅線區(qū)域生態(tài)系統(tǒng)服務(wù)的持續(xù)供給。實施生態(tài)補(bǔ)償和獎勵機(jī)制。依據(jù)生態(tài)保護(hù)紅線區(qū)域范圍、保護(hù)機(jī)會成本和保護(hù)投入在生態(tài)保護(hù)紅線區(qū)域?qū)嵤┥鷳B(tài)補(bǔ)償機(jī)制。規(guī)劃和開展生態(tài)保護(hù)紅線劃定、監(jiān)管能力建設(shè)。ImplementunifiedEPRLmonitoring,reportingandenforcement.PlanandorganizeregionalmajorecologicalconstructionandrestorationprojectstoprotectandrestoreecosystemservicesinEPRLlands.PlanandImplementthenewpaymentforperformanceandeco-compensationapproach.Planandimplementanationalcapacitydevelopmentandengagementprogram.3建立自然生態(tài)保護(hù)協(xié)調(diào)機(jī)制3Establishnewnationalcoordinatingmechanisms第十五頁，共19頁。4完善自然保護(hù)地體系4RenewandexpandanationalProtectedAreassystem完善自然保護(hù)地體系。建立生態(tài)功能保護(hù)區(qū)。我國自然保護(hù)區(qū)體系可以由自然保護(hù)區(qū)、國家公園、風(fēng)景名勝區(qū)、農(nóng)業(yè)種質(zhì)資源保護(hù)區(qū)、生態(tài)功能保護(hù)區(qū)等類型構(gòu)成。整合生態(tài)保護(hù)紅線與自然保護(hù)地體系。針對自然保護(hù)地體系中的生態(tài)保護(hù)紅線區(qū)域?qū)嵤┙y(tǒng)一協(xié)調(diào)和分類分級、分部門管理，實現(xiàn)生態(tài)保護(hù)紅線區(qū)域的有效保護(hù)。DevelopasingleintegratednationalPAsystemplanthatincludesconsolidationofPAcategoriesandmanagementapproachaswellasintegrationwiththeEPRLsystem.FurtherexaminetheneedandrequirementforaNationalParkAgencyandadministration.DevelopaProtectedAreaslawtostrengthenProtectedAreamanagementbyimprovingpublicengagement,managementplansanddedicatedfinancing.第十六頁，共19頁。5完善生態(tài)補(bǔ)償制度和激勵機(jī)制5DesignandimplementpaymentforperformanceinEPRL以生態(tài)保護(hù)紅線區(qū)為載體，建立生態(tài)補(bǔ)償長效機(jī)制。將生態(tài)補(bǔ)償直接支付到生態(tài)保護(hù)紅線區(qū)的土地所有者或經(jīng)營者。以生態(tài)保護(hù)紅線區(qū)為重點(diǎn)布局重大生態(tài)建設(shè)工程。依據(jù)生態(tài)保護(hù)紅線區(qū)面積及保護(hù)成效，完善生態(tài)轉(zhuǎn)移支付政策。實現(xiàn)生態(tài)轉(zhuǎn)移支付強(qiáng)度與生態(tài)保護(hù)紅線區(qū)域面積和保護(hù)成效掛鉤。NewpaymentforPerformanceeco-