加快草原治理，實現增收增綠

文/吳平

草原是陸地覆蓋面積最大的生態系統，被稱為“地球的皮膚”，在防風固沙、涵養水源、保持水土、凈化空氣以及維護生物多樣性等方面具有不可替代的作用。我國是世界第二草原大國，擁有各類草原面積近60億畝，約占國土面積的40%。草原既是我國江河的源頭和涵養區、維護生物多樣性的“基因庫”，也是畜牧業發展的重要資源和牧區群眾最基礎的生產生活資料。

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.

生態治理綠了草原富了牧民

近年來，我國草原生態系統保護與修復成效顯著，全國草原生態總體向好，“風吹草低見牛羊”的美景在一些地方重現。

2011年，國務院印發牧區文件，確定了“生產生態有機結合、生態優先”的基本方針，推動草原生態步入良性循環軌道。青藏高原中西部、新疆帕米爾高原和準噶爾盆地、河西走廊、內蒙古西部等地區，以生態保護為主，實施全面禁牧；青藏高原東部、內蒙古中部、新疆天山南北坡、黃土高原等地區，堅持生態優先，保護和利用并重，嚴格以水定草、以草定畜，適度發展草原畜牧業；內蒙古東部、東北三省西部、河北壩上、新疆伊犁和阿勒泰山地等地區，堅持保護、建設和利用并重，全面推行休牧和劃區輪牧，實現草畜平衡。

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.

馬群在內蒙古烏拉特中旗草原上覓食 (圖片來源：新華社）

自2011年實施草原補獎政策5年來，中央財政累計投入773.6億元，支持實施草原禁牧面積12.33億畝、草畜平衡面積26.05億畝、牧草良種補貼面積1.2億畝。草原生態環境加快恢復，全國重點天然草原牲畜超載率從2010年的30%下降到2015年的13.5%，基本達到草畜平衡。

天然草原退牧還草工程實施以來，草原植被覆蓋度和牧草產量明顯提高，草群中優良牧草比例逐步增加。據農業部監測，2015年退牧還草工程區草原植被覆蓋度較非工程區高出9個百分點，牧草高度高出48%，鮮草產量高出40.2%。通過實施游牧民定居工程，大量牧民轉產轉業，有效緩解了天然草場的承載壓力。

各地著力加強人工草地和牲畜棚圈等基礎設施建設，促進草原畜牧業由天然放牧向舍飼、半舍飼轉變，初步實現了“禁牧不禁養、減畜不減肉”。改良牲畜品種，推廣舍飼圈養，發展加工增值，草原畜牧業綜合生產能力明顯提高，草原生態保護和畜牧業發展、牧民增收實現雙贏。草原補獎政策將近90%的資金直補到戶，增加了牧民的收入，有力促進了生態補償脫貧。

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.

草原生態治理能力需不斷提升

長期以來，由于自然、地理、歷史等原因，我國草原生態文明建設保護存在以下困難和問題。

草原資源底數不清。《草原法》規定建立草原調查統計制度，定期開展草原資源調查統計工作，但該制度至今尚未建立執行。實踐中，不同部門對于草原資源數據口徑不一，當前亟須建立統計調查制度，盡快啟動第二次全國草地資源調查。

草原監理和技術服務能力滯后。長期以來，我國草原監督管理層級低、管理人員少，開展精細化管理難度大。平均每60萬畝草原僅擁有1名監理人員和1名技術推廣人員。

草原生態系統整體仍較脆弱。我國草原生態總體向好，但仍處于起步恢復階段。全國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。草原資源環境承載壓力較大。

畜牧業發展基礎薄弱。近年來，國家加大了對草原生態保護的投入，但對牧區牲畜棚圈、青貯窖池、儲草棚庫等生產性設施的投入少，“水、草、料、林、機”配套水平低，制約了畜牧業發展，在一定程度上影響了牧民實施禁牧和草畜平衡、發展標準化養殖的積極性，不利于草原生態保護成果的鞏固和擴大。

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.

著力推進草原生態文明建設

應堅持保護為先、預防為主、制度管控和底線思維，兼顧保障草原生態安全、實現草畜平衡和農牧民增收，著力推進草原生態治理體系與治理能力現代化。

制度創新引領草原生態治理。

建立健全草原法律法規體系。推進《草原法》修訂工作，增設草原資源資產產權和用途管制、草原資源資產離任審計、草原資源損害責任追究和草原生態補償等制度。大幅提高破壞草原資源、生態環境的違法成本，解決對違法處罰偏輕、法律依據不充分等問題。全面修改完善《草原法》配套法規。

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.

完善草原休養生息制度和草原保護體系。加快建立以基本草原保護制度、草原承包經營制度、禁牧休牧劃區輪牧制度、草畜平衡制度、草原監測評價考核制度為主體的草原休養生息制度體系。加快建立基本草原保護制度，劃定和保護基本草原；穩定和完善草原承包經營制度，規范承包經營權流轉；全面落實禁牧休牧輪牧和草畜平衡制度。

提高草原執法監督能力。加快推進草原行政執法體制改革。加快建立完善草原行政執法與刑事司法銜接機制。實行草原專職管護員制度，專門開展管護工作。配齊配強必要的草原生態巡護技術裝備及交通設備。加強業務培訓，提高人員綜合素質。

加強草原生態監測能力建設。啟動全國草地資源調查專項，全面摸清當前草原資源家底，為建立更加嚴格的資源管控制度、扎實推進草原生態文明建設奠定堅實基礎。

多措并舉保護恢復草原生態環境，實現“人—畜—草”平衡。

推進草原生態紅線劃定工作。制定草原自然保護區規劃。擴大退牧還草工程實施范圍，實施新一輪退耕還林還草工程，擴大退耕還草規模。繼續實施京津風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，實施農牧交錯帶已墾草原治理。

大力發展現代草原畜牧業。加快現代草原畜牧業發展，促進牧民增收和產業精準脫貧。繼續開展糧改飼和草牧業試驗試點，實施南方現代草地畜牧業推進行動和振興奶業苜蓿發展行動，扶持草產品和畜產品生產加工營銷。加快培育養殖大戶、家庭牧場、牧業專業合作組織等新型經營主體，積極引導龍頭企業在牧區發展特色養殖基地，提升草原畜牧業的經營管理水平。

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.