加快草原治理，實(shí)現(xiàn)增收增綠

文/吳平

草原是陸地覆蓋面積最大的生態(tài)系統(tǒng)，被稱為“地球的皮膚”，在防風(fēng)固沙、涵養(yǎng)水源、保持水土、凈化空氣以及維護(hù)生物多樣性等方面具有不可替代的作用。我國(guó)是世界第二草原大國(guó)，擁有各類草原面積近60億畝，約占國(guó)土面積的40%。草原既是我國(guó)江河的源頭和涵養(yǎng)區(qū)、維護(hù)生物多樣性的“基因庫(kù)”，也是畜牧業(yè)發(fā)展的重要資源和牧區(qū)群眾最基礎(chǔ)的生產(chǎn)生活資料。

Known as the skin of the earth, grassland is the ecological system which covers the largest land area and plays an irreplaceable role in wind prevention and sand fixation, water conservation, water and soil preservation, air purification and biodiversity maintenance, etc. With a grassland area of 6 billion Chinese mu (400 million hectares) or 40% of the total area, China is the second largest country in the world. Grassland is the source and conserving area of the rivers in China and a gene pool of maintaining biodiversity. It also provides important resources for the development of animal husbandry industry and basic means of production and livelihood.

生態(tài)治理綠了草原富了牧民

近年來，我國(guó)草原生態(tài)系統(tǒng)保護(hù)與修復(fù)成效顯著，全國(guó)草原生態(tài)總體向好，“風(fēng)吹草低見牛羊”的美景在一些地方重現(xiàn)。

2011年，國(guó)務(wù)院印發(fā)牧區(qū)文件，確定了“生產(chǎn)生態(tài)有機(jī)結(jié)合、生態(tài)優(yōu)先”的基本方針，推動(dòng)草原生態(tài)步入良性循環(huán)軌道。青藏高原中西部、新疆帕米爾高原和準(zhǔn)噶爾盆地、河西走廊、內(nèi)蒙古西部等地區(qū)，以生態(tài)保護(hù)為主，實(shí)施全面禁牧；青藏高原東部、內(nèi)蒙古中部、新疆天山南北坡、黃土高原等地區(qū)，堅(jiān)持生態(tài)優(yōu)先，保護(hù)和利用并重，嚴(yán)格以水定草、以草定畜，適度發(fā)展草原畜牧業(yè)；內(nèi)蒙古東部、東北三省西部、河北壩上、新疆伊犁和阿勒泰山地等地區(qū)，堅(jiān)持保護(hù)、建設(shè)和利用并重，全面推行休牧和劃區(qū)輪牧，實(shí)現(xiàn)草畜平衡。

Ecological Governance: More Green Grassland and Richer Herdsmen

In recently years, China has made remarkable achievements in preserving and repairing grassland eco-system. The overall eco-system has been very good with obvious improvement in some places. Beautiful scenes described in an ancient Chinese poem that “rippling through the pastures, north winds blow; the grass bends low, the cattle and sheep, to show” are reoccured in some pastoral areas.

In 2011, the State Council issued a document on the work in pasturing area which confirms the basic principle that production should be organically combined with ecology with the latter given a priorityIn such regions as central and western Qinghai-Tibet Plateau, Pamirs Plateau and Junggar Basin in Xinjiang,Hexi Corridor and western Inner Mongolia, etc., we should stick to the principle of protecting the ecology and banning animal husbandry. In areas like eastern Qinghai-Tibet Plateau, central Inner Mongolia, the south and north slopes of Mount Tianshan in Xinjiang and Loess Plateau, we should stick to the principles of prioritizing ecology, attaching equal importance to protection and utilization,growing grass according to the amount of water available, raising livestock in line with the amount of grass and developing animal husbandry in a moderate way. In areas like east Inner Mongolia, west of the three northeastern provinces,Bashang in Hebei Province, Yili and area around Mount Atlay in Xinjiang, etc.,we stick to the principle of placing equal emphasis on protection, construction and utilization, enhancing grassland development and fully implementing closed grazing and rotary grazing in different regions to achieve the balance between grassland and livestock.

馬群在內(nèi)蒙古烏拉特中旗草原上覓食 (圖片來源：新華社）

自2011年實(shí)施草原補(bǔ)獎(jiǎng)?wù)?年來，中央財(cái)政累計(jì)投入773.6億元，支持實(shí)施草原禁牧面積12.33億畝、草畜平衡面積26.05億畝、牧草良種補(bǔ)貼面積1.2億畝。草原生態(tài)環(huán)境加快恢復(fù)，全國(guó)重點(diǎn)天然草原牲畜超載率從2010年的30%下降到2015年的13.5%，基本達(dá)到草畜平衡。

天然草原退牧還草工程實(shí)施以來，草原植被覆蓋度和牧草產(chǎn)量明顯提高，草群中優(yōu)良牧草比例逐步增加。據(jù)農(nóng)業(yè)部監(jiān)測(cè)，2015年退牧還草工程區(qū)草原植被覆蓋度較非工程區(qū)高出9個(gè)百分點(diǎn)，牧草高度高出48%，鮮草產(chǎn)量高出40.2%。通過實(shí)施游牧民定居工程，大量牧民轉(zhuǎn)產(chǎn)轉(zhuǎn)業(yè)，有效緩解了天然草場(chǎng)的承載壓力。

各地著力加強(qiáng)人工草地和牲畜棚圈等基礎(chǔ)設(shè)施建設(shè)，促進(jìn)草原畜牧業(yè)由天然放牧向舍飼、半舍飼轉(zhuǎn)變，初步實(shí)現(xiàn)了“禁牧不禁養(yǎng)、減畜不減肉”。改良牲畜品種，推廣舍飼圈養(yǎng)，發(fā)展加工增值，草原畜牧業(yè)綜合生產(chǎn)能力明顯提高，草原生態(tài)保護(hù)和畜牧業(yè)發(fā)展、牧民增收實(shí)現(xiàn)雙贏。草原補(bǔ)獎(jiǎng)?wù)邔⒔?0%的資金直補(bǔ)到戶，增加了牧民的收入，有力促進(jìn)了生態(tài)補(bǔ)償脫貧。

Since 2011, the Central Government has invested about 77.36 billion RMB to support the prohibition of grazing in 1.233 billion Chinese mu, balance the grassland area and the number of livestock in 2.605 billion mu and subsidize the use of high-quality seeds of forage grass in 120 million mu. The recovery of the grassland ecological environment has been accelerated. The overload rate of key national natural grasslands decreased from 30% in 2010 to 13.5% in 2015 and the balance of grassland area and livestock numbers has been basically achieved.

Since the project of returning grazing areas to natural grasslands was initiated,the grasslands have rehabilitated with an obvious increase in vegetation coverage and forage yields. High-quality grass accounts for an increasingly big proportion in the grassland and the ecological environment has improved. According to the Ministry of Agriculture, vegetation coverage, grass height and fresh grass output in project areas in 2015 are respectively 9%, 48% and 40.2% higher than those in non-project areas. Through implementing the project of nomadic herdsmen settlement, a large number of herdsmen have shifted to other industries, effectively alleviating the bearing pressure of natural grassland.

Construction of infrastructure including artificial grassland and animal pens has been strengthened to promote the transformation of grassland animal husbandry industry from natural grazing to drylot feeding or semi-drylot feeding so as to ban grazing, but not to ban raising animals and reduce number of livestock, but not to reduce supply of meat. Through improving livestock species, promoting drylot feeding and value-added processing industries so as to markedly increase comprehensive production capabilities of grassland animal husbandry. A win-win situation has been achieved in protecting the grassland ecology, developing animal husband and increasing herdsmen’s income. 90% of the government subsidies for protecting the grassland has been distributed to households, which has increased the herdsmen’s income and promoted poverty alleviation through ecological compensation.

草原生態(tài)治理能力需不斷提升

長(zhǎng)期以來，由于自然、地理、歷史等原因，我國(guó)草原生態(tài)文明建設(shè)保護(hù)存在以下困難和問題。

草原資源底數(shù)不清?！恫菰ā芬?guī)定建立草原調(diào)查統(tǒng)計(jì)制度，定期開展草原資源調(diào)查統(tǒng)計(jì)工作，但該制度至今尚未建立執(zhí)行。實(shí)踐中，不同部門對(duì)于草原資源數(shù)據(jù)口徑不一，當(dāng)前亟須建立統(tǒng)計(jì)調(diào)查制度，盡快啟動(dòng)第二次全國(guó)草地資源調(diào)查。

草原監(jiān)理和技術(shù)服務(wù)能力滯后。長(zhǎng)期以來，我國(guó)草原監(jiān)督管理層級(jí)低、管理人員少，開展精細(xì)化管理難度大。平均每60萬(wàn)畝草原僅擁有1名監(jiān)理人員和1名技術(shù)推廣人員。

草原生態(tài)系統(tǒng)整體仍較脆弱。我國(guó)草原生態(tài)總體向好，但仍處于起步恢復(fù)階段。全國(guó)中度和重度退化草原面積占到總草原面積的三分之一以上。草原資源環(huán)境承載壓力較大。

畜牧業(yè)發(fā)展基礎(chǔ)薄弱。近年來，國(guó)家加大了對(duì)草原生態(tài)保護(hù)的投入，但對(duì)牧區(qū)牲畜棚圈、青貯窖池、儲(chǔ)草棚庫(kù)等生產(chǎn)性設(shè)施的投入少，“水、草、料、林、機(jī)”配套水平低，制約了畜牧業(yè)發(fā)展，在一定程度上影響了牧民實(shí)施禁牧和草畜平衡、發(fā)展標(biāo)準(zhǔn)化養(yǎng)殖的積極性，不利于草原生態(tài)保護(hù)成果的鞏固和擴(kuò)大。

Grassland ecological governance capabilities have been improved continuously

For a long time, there have been many problems and difficulties in building China’s grassland ecological civilization due to natural, geographical and historical factors.

Firstly, we are not clear about our grassland resources. Grassland Law stipulates that a grassland survey and statistics system should be established to conduct regular surverys on grassland resources. However, the system has not been set up yet. In practice, different departments have different data regarding grassland resources. A survey system needs to be set up urgently and the second national survey of grassland resources should be initiated as soon as possible.

Secondly, capabilities for supervising and managing grassland and technical services have lagged behind. Most of China’s grassland is located in remote places with difficult transportation, so the task of managing grassland is arduous. There are few regulatory agencies in some places and there is only one management staff and one technician every 600,000 mu of grassland on average.

Thirdly, grassland ecosystem is still fragile as a whole. The overall grassland ecology in China is quite good, but it is still in the initial stage of recovery. Area of grassland with moderate or severe degradation accounts for one third of the total grassland area in China. The grassland environment has a large carrying pressure.

Fourthly, China has a weak foundation in animal husbandry. In recent years,China has increased the input in protecting grassland ecology. However, input into production facilities like livestock pens and sties, silage silos and grass storage warehouses, etc. has been inadequate and the supporting mechanism for water, grass, forage, forest and machines is not well functioning. These factors have restricted the development of animal husbandry and to a certain extent,have dampened herdsmen’s enthusiasm in developing standardized animal husbandry to achieve grass-livestock balance, which is unfavorable to consolidating and expanding the achievements made in grassland ecological protection.

著力推進(jìn)草原生態(tài)文明建設(shè)

應(yīng)堅(jiān)持保護(hù)為先、預(yù)防為主、制度管控和底線思維，兼顧保障草原生態(tài)安全、實(shí)現(xiàn)草畜平衡和農(nóng)牧民增收，著力推進(jìn)草原生態(tài)治理體系與治理能力現(xiàn)代化。

制度創(chuàng)新引領(lǐng)草原生態(tài)治理。

建立健全草原法律法規(guī)體系。推進(jìn)《草原法》修訂工作，增設(shè)草原資源資產(chǎn)產(chǎn)權(quán)和用途管制、草原資源資產(chǎn)離任審計(jì)、草原資源損害責(zé)任追究和草原生態(tài)補(bǔ)償?shù)戎贫?。大幅提高破壞草原資源、生態(tài)環(huán)境的違法成本，解決對(duì)違法處罰偏輕、法律依據(jù)不充分等問題。全面修改完善《草原法》配套法規(guī)。

Spare no efforts to promote grassland ecological civilization

We should adhere to the principle of protection first, prevention foremost, rulebased control and management and bottom line-oriented thinking, attach equal importance to ensuring grassland ecological security, achieving grass-livestock balance and increasing farmers and herdsmen’s income.

Grassland ecological governance should be guided by institutional innovation.We should construct a legal framework on grassland. Grassland Law should be revised to include property rights of grassland resources and assets and use control, grassland resources and assets audit for outgoing officials, accountability for grassland resource damage and grassland ecological compensation and other mechanisms. We should increase the cost for damaging grassland resources and ecological environment by redressing the issues of light punishment for violating the law and inadequate legal basis. We should comprehensively amend and perfect supporting laws and regulations for Grassland Law.

完善草原休養(yǎng)生息制度和草原保護(hù)體系。加快建立以基本草原保護(hù)制度、草原承包經(jīng)營(yíng)制度、禁牧休牧劃區(qū)輪牧制度、草畜平衡制度、草原監(jiān)測(cè)評(píng)價(jià)考核制度為主體的草原休養(yǎng)生息制度體系。加快建立基本草原保護(hù)制度，劃定和保護(hù)基本草原；穩(wěn)定和完善草原承包經(jīng)營(yíng)制度，規(guī)范承包經(jīng)營(yíng)權(quán)流轉(zhuǎn)；全面落實(shí)禁牧休牧輪牧和草畜平衡制度。

提高草原執(zhí)法監(jiān)督能力。加快推進(jìn)草原行政執(zhí)法體制改革。加快建立完善草原行政執(zhí)法與刑事司法銜接機(jī)制。實(shí)行草原專職管護(hù)員制度，專門開展管護(hù)工作。配齊配強(qiáng)必要的草原生態(tài)巡護(hù)技術(shù)裝備及交通設(shè)備。加強(qiáng)業(yè)務(wù)培訓(xùn)，提高人員綜合素質(zhì)。

加強(qiáng)草原生態(tài)監(jiān)測(cè)能力建設(shè)。啟動(dòng)全國(guó)草地資源調(diào)查專項(xiàng)，全面摸清當(dāng)前草原資源家底，為建立更加嚴(yán)格的資源管控制度、扎實(shí)推進(jìn)草原生態(tài)文明建設(shè)奠定堅(jiān)實(shí)基礎(chǔ)。

多措并舉保護(hù)恢復(fù)草原生態(tài)環(huán)境，實(shí)現(xiàn)“人—畜—草”平衡。

推進(jìn)草原生態(tài)紅線劃定工作。制定草原自然保護(hù)區(qū)規(guī)劃。擴(kuò)大退牧還草工程實(shí)施范圍，實(shí)施新一輪退耕還林還草工程，擴(kuò)大退耕還草規(guī)模。繼續(xù)實(shí)施京津風(fēng)沙源治理和石漠化綜合治理工程，加大草原有害生物和黑土灘治理力度，實(shí)施農(nóng)牧交錯(cuò)帶已墾草原治理。

大力發(fā)展現(xiàn)代草原畜牧業(yè)。加快現(xiàn)代草原畜牧業(yè)發(fā)展，促進(jìn)牧民增收和產(chǎn)業(yè)精準(zhǔn)脫貧。繼續(xù)開展糧改飼和草牧業(yè)試驗(yàn)試點(diǎn)，實(shí)施南方現(xiàn)代草地畜牧業(yè)推進(jìn)行動(dòng)和振興奶業(yè)苜蓿發(fā)展行動(dòng)，扶持草產(chǎn)品和畜產(chǎn)品生產(chǎn)加工營(yíng)銷。加快培育養(yǎng)殖大戶、家庭牧場(chǎng)、牧業(yè)專業(yè)合作組織等新型經(jīng)營(yíng)主體，積極引導(dǎo)龍頭企業(yè)在牧區(qū)發(fā)展特色養(yǎng)殖基地，提升草原畜牧業(yè)的經(jīng)營(yíng)管理水平。

We should improve grassland recuperation system and grassland protection system. We should accelerate the establishment of a grassland recuperation system consisting of basis grassland protection, grassland contractual management and grassland monitoring and evaluation, etc. Grazing on certain areas of grassland will be banned or temporarily suspended, rotational paddock grazing will be introduced, and efforts will be made to strike a balance between grass and livestock. We should establish a system of protecting basic grassland as soon as possible. The system by which collective grassland is contracted out for operation to individual households will be kept stable and improved. Proper procedures will be introduced for the transfer of grassland under such contracts. We should fully implement the system of banning, suspending or rotating grazing and grasslivestock balance.

We should improve law enforcement and supervision capability. The administrative law enforcement system should be integrated with criminal justice system.Full-time rangers should be employed to take care of the grassland. They should be equipped with necessary technical equipment and vehicles for patrolling the grassland. Training should be conducted to improve their overall quality.

We should enhance capabilities for monitoring grassland ecology. We should kick off special surveys on national grassland resources and understand the comprehensive picture of current grassland resources, which can lay a solid foundation for establishing a stricter resource control and management system and promoting grassland ecological civilization.

Various measures should be taken to protect and restore grassland ecological environment to achieve the balance between people, livestock and grass.

Establish a grassland ecological redline and strictly preserve grassland ecological space, make plans on protecting natural reserves on grassland and speed up the construction of these reserves, expand the scope of returning the grazing land to grass and carry out a new round of projects of returning cultivated land to forest and grass. We will press ahead with the project of controlling the source of sandstorms affecting Beijing and Tianjin and comprehensively addressing the expansion of stony deserts. We should step up our efforts to control grassland pests and black soil land and restore the cultivated land to grassland in transition areas from agriculture to animal husbandry.

We should vigorously develop modern grassland animal husbandry industry.We should accelerate the development of modern grassland animal husbandry industry to increase herdsmen’s income and alleviate poverty under the precondition of protecting grassland ecological environment. We should carry out pilot projects of replacing grain crop cultivation with feed crop cultivation and grassbased animal husbandry. We should develop modern grassland animal husbandry, revitalize the development of alfalfa for dairy industry in South China and support the processing and marketing of grass products and livestock products. We should foster some big animal husbandry businesses, family ranches and animal husbandry cooperatives and other new type of business entities. We should actively guide leading companies to develop special husbandry bases,improve operational and management level of grassland animal husbandry.