我国湖泊治理的瓶颈问题与对策研究

Study on the bottleneck problems and countermeasures of lake governance in China

在深入总结分析我国湖泊保护和治理实践存在的瓶颈问题基础上,面向推进水利高质量发展、实施国家水网重大工程、复苏河湖生态环境等新形势与新要求,研究提出我国新阶段湖泊治理与保护对策:科学推进新一轮湖泊治理规划与水生态空间管控,鉴于洪涝灾害同时是最严重的生态环境灾害,对于防洪问题突出、同流域防洪体系密切相关或涉及国家发展战略的湖泊,必须科学制定防洪总体布局与治理方案;处理好经济发展与湖泊保护的关系,调整发展思路,分类开展工农业用地空间划定,妥善衔接生态空间划定,减少排污并发挥科技创新驱动作用;加强江河湖库水系连通,着力补齐活水动力基础能力短板,“内治外引”是治标与治本相结合的有效举措;合理制订治理保护目标,保障湖泊生态需水与生物多样性;强化法制体制机制保障,构建智慧湖泊水网,监测治理方案对河湖资源与生态环境的实际影响以及对策措施的有效性,打造“以图管河”“闭环管理”的创新管控模式;在共抓保护和修复的同时,统筹推进湖泊湿地系统的治理与管理,建立跨区与部门的湖泊保护联席会议制度。此外,还建议通过水工程对河湖生态治理要素的联动调度,实现物种及其生境保护和环境影响消减,发挥水利工程的“逆胁迫作用”。例如,为解决长江流域复杂的江湖关系及水生态治理问题,可利用长江上中游水库群实现全流域生态调度,强化山水林田湖海草等各种生态要素的协同治理,实现水资源开发与湖泊湿地生态修复、生物多样性保护相协调、相促进、相融合;对于黄河下游,需发挥各地政府踊跃投资的积极性,利用北金堤滞洪区、东平湖和沿黄已建和新建的一系列“人工湖”,发挥水资源调蓄配置、水生态修复作用,甚至作为下游防洪体系的有机组成,发挥分洪滞洪作用。这些对策建议可为确保我国湖泊水系综合治理与保护落地生根,织密国家水网之“目”——加强区域河湖水系连通、打牢国家水网之“结”提供支撑。

The article aims to research and propose strategies under China′s new-phase lake management and protection towards current situations and requirements of promoting high-quality development of water conservancy, implementing major projects of national water network and recovering ecological environment of rivers and lakes etc., which is based on a comprehensive analysis and generalization of the critical issues under China′s lake management and protection practice. The strategy measures include: scientifically promoting a new round of lake management planning and water ecological space control, as the flood disaster is the most serious ecological and environmental disaster, it is necessary to formulate the overall layout and control plan of flood control scientifically for the lakes with prominent flood control problems, which are closely related to the river basin flood control system or related to the national development strategy;establishing a good relationship between economic development and lake protection, adjusting thought of development, carry out spatial demarcation of industrial and agricultural land by category, properly link the demarcation of ecological space, reduce pollution and give full play to the driving role of scientific and technological innovation;strengthening connections within river and lake reservoir system and strive to make up for the short board of basic dynamic ability of living water in order to achieve an effectively outcome in both "internal treatment and diversion" combined ways;formulating reasonable protection objectives to protect lake ecological water demand and biodiversity;strengthening legislation and mechanism′s safeguard, build a smart water-lake network, monitor the actual impact of the treatment plan on river-lake resources and ecological environment and the effectiveness of countermeasures, create an innovative management and control mode of ’managing rivers by drawing’ and ’closed loop management’;promoting lake and wetland system′s protections and establish a joint conference system for lake protection between regions and departments. Furthermore, it is also suggested to achieve a joint scheduling management of all the factors in river and lake ecological management, to achieve species and habitat conservation and environmental impact mitigation, and to make fully use of the ’stress resistance’ effect in water conservancy projects. For example, it is suggested to use reservoir groups in the middle and upper reaches of the Yangtze river to fulfill the ecological dispatch within the whole basin, together with strengthening the synergetic management of various ecological factors in conserving mountains, rivers, forests, farmlands, lakes, seas and grasslands to achieve coordination, promotion and integration of water resources development, lake and wetland ecological restoration and biodiversity protection, which is regarded as an solution to the water ecological governance issue under the complex rivers and lakes network within the whole Yangtze river basin;in terms of downstream area of yellow river basin, local governmental investment pattern should be encouraged by using Beijing embankment and flood detention area, Dongping Lake and series of newly excavated man-made lakes alongside, to better implement water resources’ retention and distribution and water ecological restoration, even served as an organic composition in the flood dispatching pattern. The strategies and suggestions shown above can help ensuring the conducting and implementing of comprehensive treatment of China′s lake and water system protection, providing supports to enhance supervision, management and coordination in the national water system network.