加快草原治理，实现增收增绿

文/吴平

草原是陆地覆盖面积最大的生态系统，被称为“地球的皮肤”，在防风固沙、涵养水源、保持水土、净化空气以及维护生物多样性等方面具有不可替代的作用。我国是世界第二草原大国，拥有各类草原面积近60亿亩，约占国土面积的40%。草原既是我国江河的源头和涵养区、维护生物多样性的“基因库”，也是畜牧业发展的重要资源和牧区群众最基础的生产生活资料。

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.

生态治理绿了草原富了牧民

近年来，我国草原生态系统保护与修复成效显著，全国草原生态总体向好，“风吹草低见牛羊”的美景在一些地方重现。

2011年，国务院印发牧区文件，确定了“生产生态有机结合、生态优先”的基本方针，推动草原生态步入良性循环轨道。青藏高原中西部、新疆帕米尔高原和准噶尔盆地、河西走廊、内蒙古西部等地区，以生态保护为主，实施全面禁牧；青藏高原东部、内蒙古中部、新疆天山南北坡、黄土高原等地区，坚持生态优先，保护和利用并重，严格以水定草、以草定畜，适度发展草原畜牧业；内蒙古东部、东北三省西部、河北坝上、新疆伊犁和阿勒泰山地等地区，坚持保护、建设和利用并重，全面推行休牧和划区轮牧，实现草畜平衡。

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.

马群在内蒙古乌拉特中旗草原上觅食 (图片来源：新华社）

自2011年实施草原补奖政策5年来，中央财政累计投入773.6亿元，支持实施草原禁牧面积12.33亿亩、草畜平衡面积26.05亿亩、牧草良种补贴面积1.2亿亩。草原生态环境加快恢复，全国重点天然草原牲畜超载率从2010年的30%下降到2015年的13.5%，基本达到草畜平衡。

天然草原退牧还草工程实施以来，草原植被覆盖度和牧草产量明显提高，草群中优良牧草比例逐步增加。据农业部监测，2015年退牧还草工程区草原植被覆盖度较非工程区高出9个百分点，牧草高度高出48%，鲜草产量高出40.2%。通过实施游牧民定居工程，大量牧民转产转业，有效缓解了天然草场的承载压力。

各地着力加强人工草地和牲畜棚圈等基础设施建设，促进草原畜牧业由天然放牧向舍饲、半舍饲转变，初步实现了“禁牧不禁养、减畜不减肉”。改良牲畜品种，推广舍饲圈养，发展加工增值，草原畜牧业综合生产能力明显提高，草原生态保护和畜牧业发展、牧民增收实现双赢。草原补奖政策将近90%的资金直补到户，增加了牧民的收入，有力促进了生态补偿脱贫。

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.

草原生态治理能力需不断提升

长期以来，由于自然、地理、历史等原因，我国草原生态文明建设保护存在以下困难和问题。

草原资源底数不清。《草原法》规定建立草原调查统计制度，定期开展草原资源调查统计工作，但该制度至今尚未建立执行。实践中，不同部门对于草原资源数据口径不一，当前亟须建立统计调查制度，尽快启动第二次全国草地资源调查。

草原监理和技术服务能力滞后。长期以来，我国草原监督管理层级低、管理人员少，开展精细化管理难度大。平均每60万亩草原仅拥有1名监理人员和1名技术推广人员。

草原生态系统整体仍较脆弱。我国草原生态总体向好，但仍处于起步恢复阶段。全国中度和重度退化草原面积占到总草原面积的三分之一以上。草原资源环境承载压力较大。

畜牧业发展基础薄弱。近年来，国家加大了对草原生态保护的投入，但对牧区牲畜棚圈、青贮窖池、储草棚库等生产性设施的投入少，“水、草、料、林、机”配套水平低，制约了畜牧业发展，在一定程度上影响了牧民实施禁牧和草畜平衡、发展标准化养殖的积极性，不利于草原生态保护成果的巩固和扩大。

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.

着力推进草原生态文明建设

应坚持保护为先、预防为主、制度管控和底线思维，兼顾保障草原生态安全、实现草畜平衡和农牧民增收，着力推进草原生态治理体系与治理能力现代化。

制度创新引领草原生态治理。

建立健全草原法律法规体系。推进《草原法》修订工作，增设草原资源资产产权和用途管制、草原资源资产离任审计、草原资源损害责任追究和草原生态补偿等制度。大幅提高破坏草原资源、生态环境的违法成本，解决对违法处罚偏轻、法律依据不充分等问题。全面修改完善《草原法》配套法规。

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.

完善草原休养生息制度和草原保护体系。加快建立以基本草原保护制度、草原承包经营制度、禁牧休牧划区轮牧制度、草畜平衡制度、草原监测评价考核制度为主体的草原休养生息制度体系。加快建立基本草原保护制度，划定和保护基本草原；稳定和完善草原承包经营制度，规范承包经营权流转；全面落实禁牧休牧轮牧和草畜平衡制度。

提高草原执法监督能力。加快推进草原行政执法体制改革。加快建立完善草原行政执法与刑事司法衔接机制。实行草原专职管护员制度，专门开展管护工作。配齐配强必要的草原生态巡护技术装备及交通设备。加强业务培训，提高人员综合素质。

加强草原生态监测能力建设。启动全国草地资源调查专项，全面摸清当前草原资源家底，为建立更加严格的资源管控制度、扎实推进草原生态文明建设奠定坚实基础。

多措并举保护恢复草原生态环境，实现“人—畜—草”平衡。

推进草原生态红线划定工作。制定草原自然保护区规划。扩大退牧还草工程实施范围，实施新一轮退耕还林还草工程，扩大退耕还草规模。继续实施京津风沙源治理和石漠化综合治理工程，加大草原有害生物和黑土滩治理力度，实施农牧交错带已垦草原治理。

大力发展现代草原畜牧业。加快现代草原畜牧业发展，促进牧民增收和产业精准脱贫。继续开展粮改饲和草牧业试验试点，实施南方现代草地畜牧业推进行动和振兴奶业苜蓿发展行动，扶持草产品和畜产品生产加工营销。加快培育养殖大户、家庭牧场、牧业专业合作组织等新型经营主体，积极引导龙头企业在牧区发展特色养殖基地，提升草原畜牧业的经营管理水平。

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.