如何守护九大高原湖泊“三区”湿..
How to protect the "three areas" of nine plateau lakes..
日前，云南省林长制办公室、云南省自然资源厅、云南省生态环境厅等七部门联合印发《云南省九大高原湖泊“三区”湿地建设管理指导意见》，提出十二方面具体意见和三方面工作要求，指出要全面认识湿地功能、加强分析研判、依法规范建设、分区科学施策、坚持建管并重、强化审批监管，进一步加强九大高原湖泊“三区”范围内的湿地建设管理和指导监督，提升湿地生态功能，助推湖泊高水平保护和流域高质量发展。
Recently, Yunnan Provincial Forestry System Office, Yunnan Provincial Department of Natural Resources, Yunnan Provincial Department of Ecology and Environment and other seven departments jointly issued the Guiding Opinions on Wetland Construction and Management in the "Three Districts" of Nine Plateau Lakes in Yunnan Province, and put forward 12 specific opinions and three work requirements. It is pointed out that it is necessary to fully understand wetland functions, strengthen analysis and judgment, standardize construction according to law, make scientific policies in different districts, insist on paying equal attention to construction and management, strengthen examination and approval supervision, and further strengthen wetland construction within the "Three Districts" of nine plateau lakes
云南省九大高原湖泊“三区”湿地建设管理指导意见
Guiding Opinions on Wetland Construction and Management in "Three Districts" of Nine Plateau Lakes in Yunnan Province
为贯彻《中华人民共和国湿地保护法》（以下简称《湿地法》），落实《云南省人民政府关于九大高原湖泊“三区”管控的指导意见》（云政发〔2022〕25号，以下简称《“三区”管控意见》），针对九大高原湖泊“三区”范围内湿地建设管理中存在的建设主体多元化，建设管理要求不统一，违法违规使用土地建设人工湿地，建设地点场址选择不合理，物种选择配置不科学，湿地水动力不足，湿地管护不到位产生二次污染，过度景观化园林化，过分突出和夸大人工湿地水质净化功能等问题，进一步科学规范开展“三区”范围内湿地建设管理，维护湿地生态功能及生物多样性，促进九大高原湖泊生态保护和区域绿色发展，现提出以下意见：
In order to implement the Wetland Protection Law of the People's Republic of China (hereinafter referred to as the Wetland Law) and the Guiding Opinions of Yunnan Provincial People's Government on the Management and Control of the "Three Zones" of Nine Plateau Lakes (Yun Zhengfa [2022] No.25, hereinafter referred to as the "Three Zones" Management and Control Opinions), in view of the diversified construction subjects, inconsistent construction management requirements, illegal use of land to build constructed wetlands, unreasonable selection of construction sites, unscientific selection and allocation of species, insufficient wetland hydrodynamic force, inadequate wetland management and protection, secondary pollution, excessive landscape gardening, excessive highlighting and exaggerating the water purification function of constructed wetlands, etc., further scientifically and standardize wetland construction management within the "Three Zones", maintain wetland ecological functions and biodiversity, and promote ecological protection and regional green development of nine plateau lakes, the following opinions are put forward
一、指导思想
First, the guiding ideology
以习近平生态文明思想为指导，深入贯彻落实党的二十大和习近平总书记考察云南重要讲话精神，实施好《湿地法》，落实好省委、省政府关于九大高原湖泊保护治理的安排部署，进一步科学认识湿地价值及功能，加强自然湿地原真性和完整性保护修复，减少人类活动的干扰破坏，守护湿地生态安全边界，维护湿地的稳定性、多样性和可持续性，提升湿地生态功能；按照技术可行、经济合理、讲求实效的原则，坚持自然恢复为主，自然恢复与人工修复相结合，采取基于自然的解决方案，科学研究论证，遵循自然规律，合理配置结构，规范选择物种，依法依规、科学规范开展人工湿地建设管理，让九大高原湖泊“三区”范围内的湿地成为人民群众共享的绿色空间，促进区域绿色发展和人与自然和谐共生。
Guided by 's ecological civilization thought, thoroughly implement the spirit of the important speech delivered by the 20th National Congress of the Communist Party of China and General Secretary , implement the Wetland Law, implement the arrangements and arrangements of the provincial party Committee and the provincial government on the protection and management of the nine plateau lakes, further scientifically understand the value and function of wetlands, strengthen the protection and restoration of the authenticity and integrity of natural wetlands, reduce the interference and destruction of human activities, protect the ecological security boundaries of wetlands, maintain the stability, diversity and sustainability of wetlands, and enhance the ecological functions of wetlands; In accordance with the principles of technical feasibility, economic rationality and practical results, we should adhere to natural restoration, combine natural restoration with artificial restoration, adopt natural-based solutions, scientifically study and demonstrate, follow natural laws, rationally allocate structures, standardize species selection, and carry out constructed wetland construction and management in accordance with laws and regulations, so that wetlands within the "three areas" of nine plateau lakes can become green spaces shared by the people, and promote regional green development and harmonious coexistence between man and nature.
二、指导意见
II. Guiding Opinions
（一）分区科学施策。针对《“三区”管控意见》明确的九大高原湖泊“两线”、“三区”范围内的自然湿地和人工湿地，分区、科学、精准施策。生态保护核心区应当最大限度减少人为干扰，对退化的自然湿地，以自然恢复为主，原则上不新增建设人工湿地；生态保护缓冲区可以根据湖泊保护治理需要，坚持自然恢复为主、自然恢复与人工修复相结合，适当建设符合主体功能定位和管控要求的人工湿地；绿色发展区坚持生态优先、绿色发展，可以结合流域产业布局和发展特点，探索建设符合湖泊流域实际、具有多种功能的人工湿地。
(a) the scientific policy of zoning. According to the natural wetlands and constructed wetlands within the "two lines" and "three districts" of the nine plateau lakes specified in the "Three Districts" Management and Control Opinions, zoning, scientific and precise policies are implemented. The core area of ecological protection should minimize human interference. For degraded natural wetlands, natural restoration should be given priority to. In principle, no new constructed wetlands should be built; According to the needs of lake protection and management, the ecological protection buffer zone can adhere to the combination of natural restoration and artificial restoration, and properly build constructed wetlands that meet the main function orientation and control requirements; Green development zones adhere to ecological priority and green development, and can explore the construction of constructed wetlands with multiple functions in line with the reality of lake basins in combination with the industrial layout and development characteristics of river basins.
（二）科学认识湿地。湿地生态系统具有供给、调节、支持和文化等多种功能，在提供水资源、动植物产品生产、涵养水源、净化水质、调节气候、改善环境、维护生物多样性等方面发挥着重要作用，是区域绿色发展的重要生态支撑。生态系统结构决定生态系统功能，不同类型的湿地所发挥的主体生态功能不同，同一类型湿地不同区域由于水、土地、动植物、人类活动影响的不同，发挥的功能也不一样。湿地建设首先应当科学合理确定建设目标，遵循维系湿地结构、功能及生态过程的建设原则，以自然恢复为主、自然恢复与人工修复相结合，使湿地发挥出应有的作用和功能。
(Two) scientific understanding of wetlands. Wetland ecosystem has many functions such as supply, regulation, support and culture. It plays an important role in providing water resources, producing animal and plant products, conserving water sources, purifying water quality, regulating climate, improving environment and maintaining biodiversity, and is an important ecological support for regional green development. Ecosystem structure determines ecosystem function. Different types of wetlands play different main ecological functions. Different areas of the same type of wetlands play different functions due to different impacts of water, land, animals and plants and human activities. Wetland construction should first determine the construction goal scientifically and reasonably, follow the construction principle of maintaining wetland structure, function and ecological process, give priority to natural restoration, and combine natural restoration with artificial restoration, so that wetlands can play their due role and function.
（三）加强分析研判。九大高原湖泊每个湖泊所面临的主要矛盾各不相同，同一湖泊在保护治理的不同阶段、不同区域所面临的问题也不一样，应当坚持源头治理、精准治理、系统治理、依法治理。湿地建设应当针对每个湖泊保护治理所面临的主要矛盾和矛盾的主要方面，在客观评价湿地作用和功能的基础上，全面评估建设湿地所能解决的问题和矛盾，参考建设管理和功能发挥较好的同类型湿地，全过程考虑湿地建设、施工、管理、巡护、监测等方面的资金投入和效益产出，深入分析开展湿地建设的必要性和可行性，避免盲目建设。
(3) Strengthen analysis and judgment. The main contradictions faced by each of the nine plateau lakes are different, and the problems faced by the same lake in different stages and regions of protection and governance are also different. We should adhere to source governance, precise governance, systematic governance and legal governance. Wetland construction should aim at the main contradictions and main aspects of contradictions faced by the protection and management of each lake, comprehensively evaluate the problems and contradictions that can be solved by wetland construction on the basis of objective evaluation of wetland functions, refer to the same type of wetlands with better construction management and functions, consider the capital investment and benefit output of wetland construction, construction, management, patrol and monitoring in the whole process, and deeply analyze the necessity and feasibility of wetland construction to avoid blind construction.
（四）评估建设条件。湿地建设应当坚持湿地的原真性、完整性，遵从流域生态学原理，考虑整个流域的自然、社会和经济条件，对建设区域进行本底调查，了解该区域历史和现状，特别是地形、地貌、气候、土壤、水文、水系、水质、水量和生物等要素，以及植被分布格局、物种对栖息地的需求等，全面评估湿地的建设条件和自然恢复潜力。
(4) Evaluating the construction conditions. Wetland construction should adhere to the authenticity and integrity of wetlands, follow the principles of watershed ecology, consider the natural, social and economic conditions of the whole watershed, conduct background investigation on the construction area, understand the history and present situation of the area, especially the topography, geomorphology, climate, soil, hydrology, water system, water quality, water quantity and biology, as well as vegetation distribution pattern, species' demand for habitat, etc., and comprehensively evaluate the construction conditions and natural restoration potential of wetlands.
（五）科学规划设计。湿地建设应当与流域国土空间、生态环境保护等规划相衔接，严守耕地和永久基本农田、生态保护红线、城镇开发边界三条控制线，并将建设内容纳入湖泊保护治理规划和“一湖一策”保护治理行动方案，在符合土地用途管控要求的前提下，节约、集约使用土地资源，充分利用适宜的坑塘、洼地、荒地等便于利用的土地，统筹好湿地生态价值与景观价值，科学确定湿地建设的目标和内容，增强各项建设举措的关联性和耦合性。
(5) Scientific planning and design. Wetland construction should be linked with the planning of land space and ecological environment protection in river basins, strictly abide by the three control lines of cultivated land and permanent basic farmland, ecological protection red line and urban development boundary, and incorporate the construction content into the lake protection and governance plan and the "one lake, one policy" protection and governance action plan. On the premise of meeting the requirements of land use control, save and intensively use land resources, make full use of suitable pits, depressions, wasteland and other easy-to-use land, make overall plans for wetland ecological value and landscape value, and scientifically determine wetland construction
（六）合理选择方法。综合考虑气候条件、地理条件、水质水量、占地面积、建设投资、管护成本等因素，通过技术可操作性、经济可行性比较，选择适宜的建设工艺和方法，不因湿地建设改变甚至破坏流域水文格局，或产生新的污染源。在建设过程中，尽可能采用基于自然的解决方案，获取稳定的水源，依托天然种子库修复或营建自维持系统，减少人工管护成本。
(6) Reasonable selection methods. Considering climatic conditions, geographical conditions, water quality and quantity, land area, construction investment, management and protection costs and other factors, through the comparison of technical operability and economic feasibility, the appropriate construction technology and method are selected, so as not to change or even destroy the hydrological pattern of the basin or generate new pollution sources due to wetland construction. In the process of construction, natural-based solutions should be adopted as much as possible to obtain stable water sources, and natural seed banks should be used to repair or build self-sustaining systems to reduce the cost of manual management and protection.
（七）恰当选用物种。深入了解物种间相互作用关系，结合建设地点自然地理条件、建设方式、湿地生态功能、水文动态、水环境状况、种苗储备等情况，科学选择湿地物种，使用生态友好型本地物种。有针对性地开展种苗培育，为湿地建设提供储备。所选择的物种应当契合当地自然生态系统且成活率高、易于管理、具有较好的生态功能。禁止选用入侵物种，审慎选用外来物种，有效预防、控制和消除有害生物对湿地生态系统的危害。
(seven) proper selection of species. In-depth understanding of the interaction between species, combined with the natural geographical conditions, construction methods, wetland ecological functions, hydrological dynamics, water environment conditions, seedling reserves, etc., scientifically select wetland species and use eco-friendly local species. Targeted seedling cultivation to provide reserves for wetland construction. The selected species should fit the local natural ecosystem, have high survival rate, be easy to manage and have good ecological functions. Invasive species are prohibited, and exotic species are carefully selected to effectively prevent, control and eliminate the harm of harmful organisms to wetland ecosystem.
（八）坚持依法建设。湿地建设应当遵守有关法律法规和规定的要求，依法依规使用建设资金，办理土地使用、环境影响评价、地质灾害评估、建设方案以及涉及自然保护地建设活动等审核审批手续，禁止违法占用耕地和永久基本农田等建设湿地。严格控制各类人为活动对湿地生态空间的占用和扰动，确保湿地面积不减少、功能不降低，生态系统质量和生态功能逐渐提高。禁止永久性截断自然湿地水源，不得向湿地排放不符合水污染物排放标准的工业废水、生活污水及其他污染湿地的废水、污水，严控导致水文过程改变、影响水文联系与自然水位变化的湿地建设工程。
(Eight) adhere to the construction according to law. Wetland construction should comply with the requirements of relevant laws, regulations and provisions, use construction funds according to laws and regulations, go through the examination and approval procedures for land use, environmental impact assessment, geological disaster assessment, construction plans and construction activities involving nature reserves, and prohibit illegal occupation of cultivated land and permanent basic farmland to build wetlands. Strictly control the occupation and disturbance of wetland ecological space by various human activities, and ensure that wetland area and function are not reduced, and ecosystem quality and ecological function are gradually improved. It is forbidden to permanently cut off the water source of natural wetlands, and industrial wastewater, domestic sewage and other wastewater and sewage that pollute wetlands that do not meet the discharge standards of water pollutants shall not be discharged into wetlands. Wetland construction projects that lead to changes in hydrological processes and affect changes in hydrological links and natural water levels shall be strictly controlled.
（九）坚持建管并重。按照“谁建设、谁监管，谁审批、谁监管”的原则，落实好湿地管理责任，建立健全湿地建设、管理机制，强化湿地管护、监测工作，优先选用周边群众参与湿地建设管理，提升湿地智慧化监管水平。定期对湿地生态系统进行监测和评价，对发现问题全面排查原因，及时有效处理，合理调整优化湿地管理措施。
(Nine) adhere to equal emphasis on construction and management. According to the principle of "who builds, who supervises, who approves and who supervises", we should implement wetland management responsibilities, establish and improve wetland construction and management mechanisms, strengthen wetland management and monitoring, give priority to the surrounding people to participate in wetland construction and management, and improve the intelligent supervision level of wetlands. Regularly monitor and evaluate the wetland ecosystem, comprehensively investigate the causes of problems found, deal with them in a timely and effective manner, and rationally adjust and optimize wetland management measures.
（十）实施分类管理。“三区”范围内的湿地管理应当与《“三区”管控意见》相衔接，根据建设目标和功能定位，结合湿地动植物资源、水资源、人类活动影响等情况，实施分类管理，确保发挥重要生态功能的区域得到有效保护，湿地功能退化的区域得到科学修复，适宜公众休憩的区域得到合理利用，综合效益不断提升。
(ten) the implementation of classified management. Wetland management within the scope of the "Three Districts" should be linked with the "Management and Control Opinions of the" Three Districts ". According to the construction objectives and functional orientation, combined with wetland animal and plant resources, water resources, human activities, etc., classified management should be implemented to ensure that areas with important ecological functions are effectively protected, areas with degraded wetland functions are scientifically restored, areas suitable for public rest are rationally utilized, and comprehensive benefits are continuously improved.
（十一）维持湿地水文过程。水是湿地的灵魂，是湿地生态系统的核心驱动力。湿地的自然水文过程，是其发挥功能的重要因素，应当排除或减少过度人为活动对湿地自然水文过程的干扰，为湿地的水系连通、水文循环、水体交换等创造有利条件，根据降雨、地表径流等情况，强化雨旱季节的湿地管理，防止湿地长期过涝或干旱缺水，维持湿地水文过程与水量平衡。
(eleven) to maintain the wetland hydrological process. Water is the soul of wetland and the core driving force of wetland ecosystem. The natural hydrological process of wetland is an important factor for its function. It is necessary to eliminate or reduce the interference of excessive human activities on the natural hydrological process of wetland, create favorable conditions for water system connection, hydrological cycle and water exchange of wetland, strengthen wetland management in rainy and dry seasons according to rainfall and surface runoff, prevent long-term waterlogging or drought and water shortage of wetland, and maintain the balance of wetland hydrological process and water quantity.
（十二）科学分类改造。对功能发挥不充分或功能丧失的人工湿地，应当结合“三区”管控要求，坚持宜林则林、宜草则草、宜湿则湿、宜荒则荒的原则，按照国土空间规划及生态修复有关规划，分区分类开展改造。适宜保留为湿地的，应当在生态系统诊断的基础上科学开展修复。绿化改造的，坚持宜乔则乔、宜灌则灌、宜藤则藤、乔灌优先的原则，适地适树，选择本地树种进行绿化。生态保护核心区内，除公园和原住居民庭院以外禁止种植花卉和观赏性草坪（本地草种且无需施用肥药的除外）。
(twelve) scientific classification and transformation. Constructed wetlands with insufficient or lost functions should be combined with the management and control requirements of the "Three Districts", adhere to the principles of suitable forest, suitable grass, suitable wet, and suitable shortage, and carry out transformation according to the relevant planning of land space planning and ecological restoration. If it is suitable to be preserved as a wetland, it should be scientifically restored on the basis of ecosystem diagnosis. For greening transformation, we should adhere to the principle of giving priority to trees, irrigation, rattan and irrigation, and choose local tree species for greening. In the core area of ecological protection, it is forbidden to plant flowers and ornamental lawns except parks and original residents' courtyards (except for local grass species without applying fertilizer and medicine).
三、工作要求
Third, the job requirements
涉湖州（市）和有关部门要进一步提高认识，转变工作作风，加强调查研究，遵循确有必要、因地制宜、讲求实效、建管并重的原则，全面加强九大高原湖泊“三区”范围内的湿地建设管理和指导监督，履行好湿地建设管理的主体责任、属地责任和行业责任，推进湖泊高水平保护和流域高质量发展。
Huzhou (city) and relevant departments should further enhance their understanding, change their work style, strengthen investigation and research, follow the principles of necessity, adapting to local conditions, stressing practical results and paying equal attention to construction and management, comprehensively strengthen wetland construction management, guidance and supervision within the "three districts" of nine plateau lakes, fulfill the main responsibility, territorial responsibility and industry responsibility of wetland construction management, and promote high-level protection of lakes and high-quality development of river basins.
（一）严格湿地建设审核审批。在九大高原湖泊“三区”范围内湿地建设资金拨付、土地使用、环境影响评价、地质灾害评估、建设方案和自然保护地建设活动等手续办理过程中具有审核审批职责的部门和单位，应当加强审核把关、研究论证和信息通报，强化事中事后监管，依法依规科学开展湿地建设管理。
(a) Strict examination and approval of wetland construction. Departments and units that have the responsibility of examination and approval in the process of wetland construction fund allocation, land use, environmental impact assessment, geological disaster assessment, construction scheme and nature reserve construction activities within the "three areas" of the nine plateau lakes should strengthen examination and approval, research and demonstration and information notification, strengthen post-event supervision, and scientifically carry out wetland construction management according to laws and regulations.
（二）全面排查湿地建管情况。涉湖州（市）应当组织全面排查现有湿地的建设管理情况，完善建管档案资料，形成一湿一档。明确湿地管护单位，建立健全并执行好湿地管理、监测等制度，加强湿地规范管理。
(b) a comprehensive investigation of wetland construction and management. Huzhou (city) should organize a comprehensive investigation of the construction and management of existing wetlands, improve the construction and management archives, and form a wet file. Clear wetland management and protection units, establish and implement wetland management and monitoring systems, and strengthen standardized wetland management.
（三）强化湿地监督检查。林业草原、自然资源、水行政、住房城乡建设、生态环境、农业农村、湖泊管理等湿地保护有关部门和单位应当按照职责分工，加强对九大高原湖泊“三区”范围内湿地建设管理的监督检查，提升湿地生态功能，推进湖泊保护治理。
(c) to strengthen the supervision and inspection of wetlands. Forestry and grassland, natural resources, water administration, housing and urban construction, ecological environment, agriculture and rural areas, lake management and other wetland protection departments and units should, in accordance with the division of responsibilities, strengthen the supervision and inspection of wetland construction and management within the "three areas" of the nine plateau lakes, enhance the ecological functions of wetlands, and promote lake protection and governance.
