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Discussion on grassland contract and management digitalization
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Jia-ting WANG1, Jiang QIAO2, Zhao-ming LIU4, Rong ZHI2, Ping LI2, *
Acta Prataculturae Sinica | 2020, 29(11) : 165 - 171
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Acta Prataculturae Sinica | 2020, 29(11): 165-171
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Discussion on grassland contract and management digitalization
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Jia-ting WANG1, Jiang QIAO2, Zhao-ming LIU4, Rong ZHI2, Ping LI2, *
Affiliations
  • 1. National Livestock Husbandry Station, Beijing 100125, China
  • 2. Institute of Grassland Research, Chinese Academy of Agricultural Sciences, Hohhot 010010, China
  • 3. College of Grassland, Resource and Environmental, Inner Mongolia Agricultural University, Hohhot 010011, China
  • 4. Grassland Station of Heilongjiang Province, Harbin 150000, China
Published: 2020-11-20 doi: 10.11686/cyxb2020302
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Grassland is an important natural resource and plays a key role in maintaining the stability of ecosystems on a regional scale. Confirmation of grassland contracts and property rights provides an institutional guarantee for grassland ecological protection and development, and is a specific measure to implement the relevant central government requirements. Previous research showed that the speed of determining grassland ownership varies from region to region due to unique local factors in the various grassland areas in China, and in some regions the progress towards determining the ownership of grasslands is relatively slow. Based on analysis of the historical background and current situations relating to contract and property confirmation for grasslands, we here summarize the basic work in grassland contract and property confirmation, including data collection, contract content, contract optimization, issuing of certificates of ownership, landholder training, information management and improvement of grassland dispute resolution mechanisms, et al. The thinking of the planning sector in grassland management including the main building blocks, basic function, workflow, key technologies, is put forward. Finally, consideration of and suggestions for the next stage of the work involving ‘three property rights separation’ are put forward. This research is of great significance to furthering the development of the contract and information management of grasslands in China.

grassland contract  /  right confirmation  /  three property rights separation  /  digitalization system for contract management
Jia-ting WANG, Jiang QIAO, Zhao-ming LIU, Rong ZHI, Ping LI. Discussion on grassland contract and management digitalization[J]. Acta Prataculturae Sinica, 2020 , 29 (11) : 165 -171 . DOI: 10.11686/cyxb2020302
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我国有草原近4亿hm2,草原不仅是我国最大的陆地生态系统,也是重要的畜牧业生产基地和广大农牧民赖以生存的场所,在维护边疆稳定和民族团结方面起到了重要作用。自20世纪80年代以来实施的草原承包制度稳定了牧区人地关系,调动了牧民保护和建设草原的积极性[1]。推进草原承包工作是草原保护与建设的基础[2],也是基本草原划定、禁牧和草畜平衡等草原保护与利用制度的重要保障[3]。2008 年《关于推进农村改革发展若干重大问题的决定》中明确提出要稳定和完善草原承包经营制度[4]。2013年《中共中央关于全面深化改革若干重大问题的决定》提出健全自然资源资产产权制度和用途管理制度,对水流、森林、山岭、草原、荒地、滩涂等自然生态空间进行统一确权登记[5]。之后,《生态文明体制改革总体方案》《关于加大改革创新力度加快农业现代化建设的若干意见》《农业部关于开展草原确权承包登记试点的通知》等多个文件均对草原承包工作做出了明确要求[6,7,8,9,10]。然而,受地理、历史等因素的影响,我国草原确权承包工作滞后于农村土地[11]。但自2011年草原生态保护补助奖励政策(以下简称为“补奖政策”)实施以来,由于政策规定只有承包了的草原才予以核算补奖资金,草原承包工作有了明显的推进[12]。
当前,随着乡村振兴战略在牧区的逐步推进,草原流转、牲畜托管、劳动力转移等需求增加[13],给草原确权承包提出了新的时代要求[14,15,16,17,18,19,20,21],进一步完善和推进草原确权承包,应用现代信息化技术构建草原确权承包管理系统,实时掌握草场“三权分置”情况[22],对国家生态文明建设已显得尤为重要[23]。
1 草原承包现状
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补奖政策实施以来,各地加快推进草原承包工作,截止2017年全国草原承包面积达到2.82亿hm2[24],较2010年提高了20.4%[25],其中承包到户2.11亿 hm2、承包到联户0.66亿 hm2,分别较2010年提高了19.5%、30.8%。在6大牧区中,西藏、内蒙古、新疆、青海、四川、甘肃的草原承包面积分别为6852.93万、6804.73万、4481.92万、3990.73万、1730.72万、1596.71万hm2[24](图1)。在全国268个牧区半牧区县中,草原承包面积1.67亿hm2,其中牧区县1.27亿hm2、半牧区县3917.84万hm2[24]。草原承包以承包到户为主,占总承包草原面积的75%,其次为承包到联户的形式,占总承包草原面积的23%。各省区承包类型如图1所示,当前实施补奖政策的各牧区省,除河北外,均以承包到户为主,河北省承包到联户的比例(36%)高于承包到户比例(8%)。此外,新疆、河北、宁夏、吉林、辽宁、黑龙江6省区还存在少量草原以竞价承包等其他形式承包[26,27]。
2 草原确权承包基础工作
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2.1 草原承包基础信息采集
推进草原承包,要明确草地资源数量[28],填写草原基础情况信息采集表[29]。需要采集的信息包括:1)行政区划信息,即地块所属县、乡、村的名称。2)牧户信息,包括牧户编号和户主身份证号。3)承包信息,包括承包证号、承包面积及草原承包证照片。4)草原管理规定,包括禁牧面积、草畜平衡面积、划定基本草原面积、核定载畜量等。5)草场使用情况,包括饲草料地面积,冬春场、夏场、秋场面积等。6)草场流转信息,包括流转时间、流转人、流转期限、流转合同等。
2.2 完善草原承包合同
根据调查摸底结果,制定完善统一的草原承包合同。对没有承包的草原,要根据利用现状落实承包关系,公示无异议后签订承包合同,做到应包尽包;对已承包但合同丢失、残缺、不完善的,进行补签、完善。以承包农牧户为基本单位,按照一户一簿或者一村一册的原则,建立健全草原承包登记簿[23]。
2.3 颁发草原权属证书
制定核发统一的草原所有权、草原使用权、草原承包权和草原经营权证书。涉及换发证件的,原权属证书要收回销毁、宣布作废。未确定给农牧民集体使用的国有草原,由县级人民政府登记造册[23]。
2.4 加强技术培训和技术服务
加强对各级草原主管部门、技术支撑部门管理、技术人员的培训,并且定期组织人员到基层对开展草原承包教育和普法宣传,在牧区营造草原依法承包经营、合理利用的氛围,让草原的承包者和经营者明确自己的责权利。
2.5 加强信息化管理
草原确权承包信息涉及空间地理和属性两类信息,需将3S技术(遥感、地理信息系统和GPS)、数据库技术和计算机技术进行集成,建立草原确权承包数据库,对农牧民承包草场信息进行数字化管理,建立草原承包电子档案,建立草场流转交易平台,动态掌握草场经营流转情况,为打造数字草原奠定基础。
3 草原承包管理信息平台构架
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3.1 承包信息到户管理系统
以户为单位收集上报信息,涵盖人口信息、承包面积、承包证号、承包证图片、流转情况、地块拐点GPS坐标等,按照省、地、县、乡、村5级管理,逐级审核上报,构建一套完善的系统框架。
3.2 大数据快速检索功能
科学制定牧户编号和填报年度等信息数据位数,确定数据库最佳检索方案,实现省、地、县、乡、村逐级信息管理机制,并对牧户信息进行快速查询与检索。
3.3 Excel模板导入与导出
制作规范的数据导入模板,用Excel实现承包系统空间和属性数据集成接口,规范系统数据,提高准确性,减少服务器并发访问压力,提高基层管理部门工作效率,也便于技术人员理解和上机操作。
3.4 基本流程
首先是基层用户根据采集指标,对农牧户草场承包信息到实地进行准确、规范采集并数字化;然后导入Excel模板数据,上传牧户草场承包证照片,逐级审核已导入信息(图2)。
3.5 系统框架
从面向分层设计的视角,可以将系统设计分为如下层次:用户交互分层、交互控制层、业务服务层、公共服务层、业务流程管理、数据访问层和数据存储层[30,31]。
3.5.1 用户交互层 应用Web 2.0 技术,构建用户与系统的人机交互界面,为用户提供本地计算机的计算能力[32]。
3.5.2 交互控制层 主要为系统操作界面和行业业务服务之间进行数据交换,同时对系统的业务进行整体控制,将前台与后台业务隔离开,使后台业务服务实现标准化操作,操作界面友好。
3.5.3 业务服务层 主要包括各类封装的实现逻辑业务和服务组件业务,调用数据访问层的数据,但本身不直接访问系统业务数据库。
3.5.4 公共服务层 为系统用户提供统一的、通用的业务需求服务。包括:日志、事物、校验、异常等,其中日志按日期生成包括网络服务器运行、业务操作等文件;校验主要包括前台开发的脚本校验框架和后台JAVA开发数据校验框架;异常包括对业务操作异常和持久化异常进行了封装。
3.5.5 业务流程管理 主要为系统业务用户提供对流程和管理以及处理等操作,如信息录入、审核流程,单位与用户注册、审批、授权等流程。
3.5.6 数据访问层 主要负责进行数据库访问及系统模块间交互操作,同时进行数据的存取操作。
4 下一步工作的思考
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当前,虽然草原承包工作有了一定进展[33],但在很多地区还存在产权不清的情况,各省区草原的承包进度也不一样,存在的问题各不相同[34,35,36],需要继续稳定和完善草原承包经营制度,探索信息化、规范化的草原承包管理模式和草原“三权分置”制度[37],进一步激发草原活力。2016年,《关于完善农村土地所有权承包权经营权分置办法的意见》[38]明确提出探索农村土地集体所有制的有效实现形式,草原“三权分置”制度强调稳定草原承包权。稳定承包权有利于发挥草原的社会保障功能,促进牧民转产,降低对草原的依赖性[1]。 但草原异质性很强,在确权承包过程中,应结合当地特点,充分考虑农牧民的意愿,组织发动群众积极参与[39]。
实施“三权分置”的重点是放活经营权,从法律上明确经营权的权能和边界[40]。“三权分置”为完善草原产权制度提供了方向,但草原不同于耕地,除了是农牧民生产生活资料外,还具有涵养水源、净化空气、碳汇储备、防风固沙等重要生态功能,以及维护边疆稳定和国家安全的政治功能[1]。在市场经济环境下,流转方式不合理,会导致非牧民涌入草原地区与牧民争夺资源[1],因此,对草原实行“三权分置”时要慎重,防止企业、合作社等新型经营主体对草原大面积流转后,过度放牧利用,导致草原退化,生产、生态功能下降,甚至不能恢复。
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doi: 10.11686/cyxb2020302
  • Receive Date：2020-06-30
  • Online Date：2026-03-13
  • Published：2020-11-20
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  • Received：2020-06-30
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    1. National Livestock Husbandry Station, Beijing 100125, China
    2. Institute of Grassland Research, Chinese Academy of Agricultural Sciences, Hohhot 010010, China
    3. College of Grassland, Resource and Environmental, Inner Mongolia Agricultural University, Hohhot 010011, China
    4. Grassland Station of Heilongjiang Province, Harbin 150000, China

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表12种不同金属材料的力学参数
科
Family		 属数
Number of
genus		 种数
Number of
species		 占总种数比例
Percentage of
total species (%)		 属
Genus		 种数
Number of
species		 占总种数比例
Percentage of total
species (%)
鹅膏菌科Amanitaceae 2 11 5.26 鹅膏菌属 Amanita 10 4.78
小菇科 Mycenaceae 2 12 5.74 丝盖伞属 Inocybe 5 2.39
多孔菌科 Polyporaceae 8 14 6.70 蜡蘑属 Laccaria 5 2.39
红菇科 Russulaceae 3 23 11.00 小皮伞属 Marasmius 6 2.87
小菇属 Mycena 11 5.26
光柄菇属 Pluteus 5 2.39
红菇属 Russula 17 8.13
栓菌属 Trametes 5 2.39
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