制度变迁与草地退化的关联性分析——以锡林郭勒盟为例

Correlation analysis between the institutional changes and grassland degradation:A case study of Xilinguole

通过对内蒙古改革开放以来草地制度变迁进行系统梳理,采用锡林郭勒盟1981-2013年数据,分析其草地退化的演化轨迹,探究草地退化与产权制度和政策之间的关联性。研究表明:从1978-2000年,锡林郭勒盟牲畜数量持续增加,牧民收入大幅提高,然而草地退化面积增加,牧草质量下降,退化问题严重,这主要由于草畜承包时间上的错位及草地公有与牲畜私有产权之间的矛盾造成;从2000-2010年,退化面积下降,退化态势得到遏制和扭转,但由于"草畜平衡"测定标准的局限性及禁牧补贴偏低出现了一些不良现象;2011年至今,退化总体趋势得到遏制,且区域整体呈好转态势,但草原生态保护补助奖励制度存在禁牧周期短、补助标准固定化的缺陷。草地退化与产权制度和政策有极强的关联性,针对各阶段草地制度与政策的缺陷,结合国内外草地治理经验,提出以下对策建议:制定草地承包制度期限的长期性;建立基于草地生态系统功能最优的"草畜平衡"制度;实行生态补偿制度的长期性;加大生态补贴力度,并建立动态性和市场化的补贴标准;以及提高草地政策的监督管理力度。

Basedontheannualdatafrom 1981to2013ofXilinguole,InnerM ongolia,thispaperconductedasystematic review ofthe history ofthe institutionalchange ofthe grassland,analyzed the evolution ofthe grassland degradation,and explored the internalrelations ofthe grassland degradation and property rightinstitutions and policies in X ilinguole since Inner M ongolia initiated econom ic reform and opening up policies.M ain results show that：1） From 1978 to 2000,the livestock num bercontinued to increase and ranchers’incom e also increased significantly,butthe grassland degradation area rose and the quality of forage declined because of ow nership conflict of grassland and livestock cattle and the inconsistentcontracttime;2）From 2000to2010,degradationareawasreducedandthedecreasingtrendwasreversed. H ow ever there w ere som e challenges because of the lim itations of determ ination of‘grassland-livestock balance’and low grazing-restriction subsidies;and 3） since 2011, the w hole trend of grassland degradation had been under control, and the increasing degradation trend has been reversed. B ut the G rassland E cological Protection Subsidy and R ew ard System had the defects in thatprohibited grading period is too shortand subsidy policy is lack offlexibility.The study also confirm ed the strong correlation betw een the grassland degradation and grassland institutions and polices.B ased on the findings of this research, w e provide the follow ing suggestions：1） form ulating the long-term contracting system of livestock;2） establishing ‘grassland-livestock balance’system based on the best grassland ecosystem function;3） im plem enting long-term ecologicalcom pensation system;4）increasing the ecologicalsubsidies and establishing dynam ic and m arket-oriented subsidies;and 5）im proving the supervision and m anagem entofgrassland policies.