基于学者视角的禁牧政策成效解析与适时调整

The effects and timely adjustment of grazing prohibition policy:a case study based on scholars’ perspective

生态文明建设和绿色发展背景下,为探索北方农牧交错区禁牧政策适时调整的必要性及对策,以宁夏盐池县为案例,基于学者视角的政策情境化分析框架,应用结构化访谈和问卷调查,解析不同禁牧阶段盐池社会-生态图景特征及政策成效,探索禁牧政策发展出路和调控对策。禁牧后农牧户的生计多样性和外出打工行为显著增加,草食畜饲养数量显著增长,偷牧现象普遍,农牧不协调问题由禁牧初期的草畜不平衡转变为禁牧现阶段地下水过度消耗、养殖成本攀升效益下降。草原覆盖度、草原质量和草原产草量逐期改善,现阶段生态恢复效益显著但存在因长期禁牧而导致的局地退化现象。禁牧政策亟需在管理方式、限制时间和空间范畴上适度解禁,可尝试放牧收费制度,提高农牧户生态补偿标准。

In order to explore the timely adjustment necessity and countermeasures of grazing prohibition policy what practiced in the farming-pastoral ecotone in northern China under the ecological civilization construction and green development background,we take the Yanchi County of Ningxia as a case,which is located in the transitional zone of terrain,climate and vegetation. As a wise person,planner and tester for national development policies,the scholars’ perspective was regarded as the entry point to analyze the social-ecological characteristics and policy effects in the different grazing prohibition stage,and explore the way out and regulation of the grazing prohibition policy by the structured interviews and questionnaires based on the Policy Contextual Analysis framework. The results showed that after the ban on grazing,the livelihood diversity and the behavior of migrant workers and the number of herbivorous livestock had increased significantly. The phenomenon of trespass grazing had been widespread. The problem of uncoordinated farming and animal husbandry had changed from the imbalance of grassland in the early grazing prohibition period to groundwater consumption and farming costs rising while benefits declined in current stage. The grassland coverage,grassland quality and grassland yield showed the improvement trend in the early grazing prohibition period. There was,furthermore,an obvious improvement in the intermediate stage and a significant improvement with some degradation in its current stage.The grazing prohibition policy urgently needs to moderately lift the prohibition in terms of management methods,time and space restrictions. Based on the non-equilibrium theory and polycentric governance,the multi-central grassland governance system should be created in future. The grazing fees system as the theoretically feasible solution can be tried. And the ecological compensation standard for farmers should be increased.