农业产业准入负面清单制度研究
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摘要
[目的]旨在依据区域农业资源禀赋、生态环境容量、产业基础和功能定位,按照"生态红线"和"底线约束"的要求,明确种植业、养殖业发展方向和开发强度,强化农业产业准入门槛,加强区域资源管护和生态治理。[方法]以农业产业准入负面清单为研究对象,在综合考虑农业资源承载力、区域主体功能定位基础上,剖析建立农业产业准入负面清单制度的背景、意义及其内涵,基于"减规模、转方式、控规模、退出生产"要求探讨负面清单编制原则以及禁止类、限制类农业产业目录与管控条件的编制方法,重点分析农业资源超载、生态环境退化典型区域的农业产业发展管控对策。[结果](1)在华北平原地下水漏斗区,实施节水保水型耕作方式,限制冬小麦种植面积;(2)在中—重度重金属污染区实施3～5年休耕,在轻微—轻度重金属污染区域,实施清洁去污型休耕模式,优先种植生物量高、吸收积累作用强的富集型植物;(3)在长江中下游传统双季稻主产区,适度调减双季稻田,实施"双改单",控制水网密集区生猪、奶牛养殖规模;(4)在生态严重退化区,实行生态修复型休耕,种植防风固沙、涵养水分、保护耕作层的植物;(5)在东北黑土区,适度调减水稻种植面积,增加食用大豆生产,推进种养结合;(6)在生态保护发展区,推行禁牧休牧轮牧和舍饲半舍饲。[结论]采取开展农业产业准入负面清单编制试点、完善法律法规、建立生态补偿机制、加强制度建设等措施保障农业产业准入负面清单制度的建立。
According to the regional agricultural resources endowment,ecological environment capacity,industrial foundation,function orientation and requirements of " ecological red line" and " bottom line constraint",the purpose of implementing the negative list system of agricultural industry admittance is to define the development direction and intensity of planting and breeding industry,strengthen the environmental and ecological protection. Based on agricultural resource carrying capacity and regional function orientation,this study took the negative list of agricultural industry admittance as the research object. First of all,it analyzed the background,significance and connotation of establishing a negative list of agricultural industry admittance. Secondly,it discussed the principles and methods of formulate catalogue and control conditions of prohibited and limited agricultural industry based on the requirements of reducing the scale,transferring the produce way,controlling the scale and halting the development.Finally,it analyzed the control countermeasures of agricultural resources overloading and ecological environment degradation in typical regions. The results showed that in the groundwater funnel area of North China Plain,the method of water-saving cropping system should be implemented,so as to restrict the planting area of winter wheat.In the moderate and severe heavy-metal polluted region,3-5 years fallow mode should be taken,whereas in the mild heavy-metal polluted region,clean and decontamination fallow mode should be put in practice,and plants with high biomass and strong absorption and accumulation should be grown preferentially. In the Middle-Lower Reaches of the Yangtze River,the area of double-crop rice fields should be reduced appropriately,and the singlecrop rice should be grown instead of double-crop rice,the scale of pig farming and cow farming should be controlled. In the serious ecological degradation area,the ecological restoration fallow should be implemented,the crops which can prevent the wind and sand,conserve water and protect plough layer should be planted. In black soil region of Northeast China,the proportion of rice planting should be reduced appropriately,the edible soybean production should be increased,and the combination of planting and breeding should be promoted. In ecological protection development area,the measures of grazing prohibition,rest-grazing and rotation grazing,and the methods of stall-fed and half stall-fed should be carried out. At last,this study puts forward some measures to ensure the establishment of negative list system of agricultural industry admittance,such as piloting preparation of agricultural industry admittance negative list,improving relevant laws and regulations,establishing ecological compensation mechanism and strengthening system construction.
According to the regional agricultural resources endowment,ecological environment capacity,industrial foundation,function orientation and requirements of " ecological red line" and " bottom line constraint",the purpose of implementing the negative list system of agricultural industry admittance is to define the development direction and intensity of planting and breeding industry,strengthen the environmental and ecological protection. Based on agricultural resource carrying capacity and regional function orientation,this study took the negative list of agricultural industry admittance as the research object. First of all,it analyzed the background,significance and connotation of establishing a negative list of agricultural industry admittance. Secondly,it discussed the principles and methods of formulate catalogue and control conditions of prohibited and limited agricultural industry based on the requirements of reducing the scale,transferring the produce way,controlling the scale and halting the development.Finally,it analyzed the control countermeasures of agricultural resources overloading and ecological environment degradation in typical regions. The results showed that in the groundwater funnel area of North China Plain,the method of water-saving cropping system should be implemented,so as to restrict the planting area of winter wheat.In the moderate and severe heavy-metal polluted region,3-5 years fallow mode should be taken,whereas in the mild heavy-metal polluted region,clean and decontamination fallow mode should be put in practice,and plants with high biomass and strong absorption and accumulation should be grown preferentially. In the Middle-Lower Reaches of the Yangtze River,the area of double-crop rice fields should be reduced appropriately,and the singlecrop rice should be grown instead of double-crop rice,the scale of pig farming and cow farming should be controlled. In the serious ecological degradation area,the ecological restoration fallow should be implemented,the crops which can prevent the wind and sand,conserve water and protect plough layer should be planted. In black soil region of Northeast China,the proportion of rice planting should be reduced appropriately,the edible soybean production should be increased,and the combination of planting and breeding should be promoted. In ecological protection development area,the measures of grazing prohibition,rest-grazing and rotation grazing,and the methods of stall-fed and half stall-fed should be carried out. At last,this study puts forward some measures to ensure the establishment of negative list system of agricultural industry admittance,such as piloting preparation of agricultural industry admittance negative list,improving relevant laws and regulations,establishing ecological compensation mechanism and strengthening system construction.
引文
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[2]杨荣珍,高天昊.外商投资负面清单模式的国内外经验比较研究.山东大学学报,2016(5):145-152.
[3]纪林繁.社会治理体系中负面清单的管理模式.行政论坛,2017,24(2):93-96.
[4]新华社.中共中央关于全面深化改革若干重大问题的决定.先锋队,2013,34(34):7~20 http://www.gov.cn/jrzg/2013-11/15/content_2528179.htm,2013-11.
[5]国家发展改革委印发《重点生态功能区产业准入负面清单编制实施办法》.http://www.xinhuanet.com/2016-10/21/c_1119762638.htm,2016-10.
[6]陆建明,吴立鹏,刘潞.负面清单行业限制程度的测度方法与评价体系.统计研究,2017,34(2):55-66.
[7]陈朝兵.“负面清单”管理在我国的缘起、应用价值与推广路径.现代经济探讨,2015(8):20-24.
[8]尹昌斌,程磊磊,杨晓梅,等.生态文明型的农业可持续发展路径选择.中国农业资源与区划,2015,36(1):15-21.
[9]王丽娟,刘玉,费建琴,等.基于SWOT分析的重点生态功能区农业可持续发展路径研究---以浙江省为例.中国农业资源与区划,2016,37(11):65-71.
[10]沈瞿和.清单制度法理分析及法治要点.国家行政学院学报,2016(4):82-86.
[11]邱倩,江河.重点生态功能区产业准入负面清单工作中的问题分析与完善建议.环境保护,2017,45(10):46-48.
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[13]中国共产党第十九次全国代表大会报告《决胜全面建成小康社会,夺取新时代中国特色社会主义伟大胜利》.http://cpc.people.com.cn/n1/2017/1028/c64094-29613660.html,2017-10.
[14]中共中央办公厅、国务院办公厅印发《关于创新体制机制推进农业绿色发展的意见》.http://www.gov.cn/xinwen/2017-09/30/content_5228960.htm,2017-09.
[15]王德胜.绿色农业的发展现状与未来展望.中国农业资源与区划,2016,37(2):226-230.
[16]Pan Ying,Yu Zhenrong,Holst J,et al.Integrated assessment of cropping patterns under different policy scenarios in Quzhou County,North China Plain.land Use Policy,2014,40(40):131-139.
[17]王学,李秀彬,辛良杰,等.华北地下水超采区冬小麦退耕的生态补偿问题探讨.地理学报,2016,71(5):829-839.
[18]环境保护部,国土资源部.全国土壤污染状况调查公报.http://www.zhb.gov.cn/gkml/hbb/qt/201404/t20140417_270670.htm,2014-04.
[19]陆继龙.我国黑土的退化问题及可持续农业.水土保持学报,2001,15(2):53-55.
[20]An Juan,Zheng Fenli,Wang bin.Using137Cs technique to investigate the spatial distribution of erosion and deposition regimes for a small catchment in the black soil region,Northeast China.Catena,2014,123:243-251.
[21]农业农村部等8部门印发《全国农业可持续发展规划(2015-2030年)》.农计发[2015]145号.http://www.moa.gov.cn/ztzl/mywrfz/gzgh/201509/t20150914_4827900.htm,2015-09.
[2]杨荣珍,高天昊.外商投资负面清单模式的国内外经验比较研究.山东大学学报,2016(5):145-152.
[3]纪林繁.社会治理体系中负面清单的管理模式.行政论坛,2017,24(2):93-96.
[4]新华社.中共中央关于全面深化改革若干重大问题的决定.先锋队,2013,34(34):7~20 http://www.gov.cn/jrzg/2013-11/15/content_2528179.htm,2013-11.
[5]国家发展改革委印发《重点生态功能区产业准入负面清单编制实施办法》.http://www.xinhuanet.com/2016-10/21/c_1119762638.htm,2016-10.
[6]陆建明,吴立鹏,刘潞.负面清单行业限制程度的测度方法与评价体系.统计研究,2017,34(2):55-66.
[7]陈朝兵.“负面清单”管理在我国的缘起、应用价值与推广路径.现代经济探讨,2015(8):20-24.
[8]尹昌斌,程磊磊,杨晓梅,等.生态文明型的农业可持续发展路径选择.中国农业资源与区划,2015,36(1):15-21.
[9]王丽娟,刘玉,费建琴,等.基于SWOT分析的重点生态功能区农业可持续发展路径研究---以浙江省为例.中国农业资源与区划,2016,37(11):65-71.
[10]沈瞿和.清单制度法理分析及法治要点.国家行政学院学报,2016(4):82-86.
[11]邱倩,江河.重点生态功能区产业准入负面清单工作中的问题分析与完善建议.环境保护,2017,45(10):46-48.
[12]中共中央、国务院印发《生态文明体制改革总体方案》.http://www.gov.cn/guowuyuan/2015-09/21/content_2936327.htm,2015-09.
[13]中国共产党第十九次全国代表大会报告《决胜全面建成小康社会,夺取新时代中国特色社会主义伟大胜利》.http://cpc.people.com.cn/n1/2017/1028/c64094-29613660.html,2017-10.
[14]中共中央办公厅、国务院办公厅印发《关于创新体制机制推进农业绿色发展的意见》.http://www.gov.cn/xinwen/2017-09/30/content_5228960.htm,2017-09.
[15]王德胜.绿色农业的发展现状与未来展望.中国农业资源与区划,2016,37(2):226-230.
[16]Pan Ying,Yu Zhenrong,Holst J,et al.Integrated assessment of cropping patterns under different policy scenarios in Quzhou County,North China Plain.land Use Policy,2014,40(40):131-139.
[17]王学,李秀彬,辛良杰,等.华北地下水超采区冬小麦退耕的生态补偿问题探讨.地理学报,2016,71(5):829-839.
[18]环境保护部,国土资源部.全国土壤污染状况调查公报.http://www.zhb.gov.cn/gkml/hbb/qt/201404/t20140417_270670.htm,2014-04.
[19]陆继龙.我国黑土的退化问题及可持续农业.水土保持学报,2001,15(2):53-55.
[20]An Juan,Zheng Fenli,Wang bin.Using137Cs technique to investigate the spatial distribution of erosion and deposition regimes for a small catchment in the black soil region,Northeast China.Catena,2014,123:243-251.
[21]农业农村部等8部门印发《全国农业可持续发展规划(2015-2030年)》.农计发[2015]145号.http://www.moa.gov.cn/ztzl/mywrfz/gzgh/201509/t20150914_4827900.htm,2015-09.