美国公共放牧地管理政策演进的历史经验

doi:10.11686/cyxb2019497

摘要/Abstract

摘要： 当初步遏制草地退化后,我国当前迫切需要对草地管理政策进行优化和调整,进而更好地通过草畜平衡和生态补贴实现生态保育和牧民利益的协调和可持续发展目标。长达90年的美国公共放牧地政策可以为我国调整和优化草地管理政策提供借鉴。美国经验表明,实现草地生态保育需要在社会共识、法律体系和行政管理等方面,牢固地树立和实现草地的多重功能和生态系统服务理念。进一步地,公有的草地产权制度是保障草地多重生态系统服务的法律前提,非牧产业发展是实现草地多重功能的经济基础,精细的行政管理是实现草地生产生态平衡的技术保障,多种利益主体参与是实现草地管理制度改革的活力来源。美国草地管理制度发展的曲折反复,也说明了生态管理政策的失效和调整,禁牧和监管强度的张弛反复,不同利益集团的矛盾诉求和博弈消长,都是草地治理中的正常情况。我国草地治理也可能经历复杂曲折的过程。在下一阶段,草地产权的优化、行政管理的精细化、牧民利益和生态保育目标的协调,是实现我国草地可持续治理的核心要务。

关键词: 草地政策, 草畜平衡, 生态系统服务, 生态补偿, 政策调整

Abstract: After China has halted grassland degradation, it will be very important to rapidly improve current grassland management policies, especially those related to determining the grassland-livestock balance and payments for ecosystem services, and to achieve sustainable development goals (SDGs) for ecological conservation and improvement of herders’ well-being. Over the past 90 years, the United States has created and adjusted its public rangeland management systems and the US experience provides much valuable information for the reform of grassland management policies in China. The lessons from American public management suggest that multiple use and ecosystem service of grassland are two key concepts for sustainable management of grassland. These concepts should be firmly confirmed by social consensus, through the legal system, and in administrative management. Furthermore, public ownership rights form the legal premise for establishing multiple ecosystem services of grassland. The other stakeholder industries beyond animal husbandry provide the economic foundation to realize multifunctional grassland systems. Precise and responsive management by administrative agencies will guarantee the balance between livestock production and ecological conservation. The public participation of multiple stakeholders is the engine to drive forward the reform of grassland management systems. Meanwhile, the twists and turns of public rangeland management evolution in the United States suggest that common elements in the historic development of grassland management policy include: failure and adjustment of ecological policies, the flexibility to reconsider grazing prohibition and supervision intensity, and conflict and compromise between interest groups. All these elements may appear in China’s journey to achieve sustainable grassland management. In the next stage, optimization of grassland property rights, refinement of administrative management, coordination between herders and ecological conservation are the core tasks in the drive to achieve sustainable grassland management in China.

Key words: grassland management policy, grassland-livestock balance, ecosystem services, payments for ecosystem services, policy change

姜晓群, 林哲艳, 时钰, 赵晋灵, 李昂. 美国公共放牧地管理政策演进的历史经验[J]. 草业学报, 2020, 29(11): 151-164.

JIANG Xiao-qun, LIN Zhe-yan, SHI Yu, ZHAO Jin-ling, LI Ang. Historic experience from American public rangeland management policies[J]. Acta Prataculturae Sinica, 2020, 29(11): 151-164.

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