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The author:(作者)aaapublished in(发表于) 2013/12/12 9:30:25 The Ministry of environmental protection： forbidden to resolve outstanding issues on behalf of developing nature reserve
December 11, according to the China Government news, December 2, the State Council issued regulations on national nature reserve management. Head of the Department of environmental protection said in an interview, environmental protection departments to request adjustments through technological means such as satellite remote sensing to monitor nature reserve, and resolutely take solving problems left over by history may walk in the name of developing real adjustment of nature reserve resources.
Adjustment is the head of the Ministry of environmental protection of the national nature reserve of the following rules in answering a reporter's question full text:
Reporter: the necessity of modifying the adjustment provisions of
Person in charge: Party of 18 proposed to vigorously promoting the construction of ecological civilization, "must foster respect for nature, comply with the nature, to protect the natural ecological civilization concepts", "expansion of the area of forests, lakes, wetlands, conservation of biological diversity". The CPC Central Committee on several major issues of comprehensive reform decision calls for the acceleration of the system construction of ecological civilization, implement the most strict system of source protection, the establishment of spatial planning system, the delimitation of production, life, ecology Control Limits space development to implement use control. Delineation of ecological protection of the red line and determined implementation of main function regionalization system, establishment of development and protection of land and space systems. The construction of nature reserve is an important carrier specific actions promoting the construction of ecological civilization and was strengthening of ecological protection, and controlled an important part of the red line, is to optimize the land space development pattern and main measures for the conservation of biological diversity. Implementation of 18 large and 18 the spirit of the third plenary session of the party, must work to further strengthen the management of nature reserves, improve the level of nature reserve management, ensure the country's ecological security.
National nature reserve is a typical significance both at home and abroad, has a major international impact in science or special scientific interest, and approved by the State Council approved the establishment of nature reserves. National nature reserve adjustments, refers to the expansion of the outer limit of national nature reserves, shrinking or regional exchanges between inside and outside protected areas, within core areas, buffer zones, or adjustment of the experimental area. According to the relevant provisions of the regulations of the nature reserve, State-level nature reserve range adjustment approved by the State Council. In 2002, the national nature reserve of the State Council issued a regulation of norms and Ribbon to adjust for range adjustment and change of name management regulations (letter "2002") (hereinafter referred to as the adjustment regulations), ensures that the adjustment of the management there are rules to follow.
In recent years, as economic social of fast development, due to engineering construction, and resources development, and town of advance and the natural situation changes, causes, many place made on national nature reserve for adjustment, some place to meet development construction of needs, repeatedly on reserves for adjustment, compression has nature reserve of space, led to Habitat broken of, species survival conditions deteriorated, on ecological environment and bio diversity protection produces has serious effects. Some important ecological function area, involving adjustments in national nature reserve of the rare and endangered species have attracted domestic and international attention.
Given original adjustment provides under exists with on individual adjustment work of related requires enough clear, boundaries not Qing, some provides not perfect, or some necessary of provides is lack, adjustment program remains to be further sound, and responsibility held mechanism yet established, especially missing on illegal violation problem of processing pursuant to, problem, has not adapted current national nature reserve adjustment management work of actual needs, has necessary for modified. According to the State Council notice on work on nature reserve management (State Office (2010)) (hereinafter referred to as the national notification) requirements, stricter adjustments in national nature reserve, raising scientific and normative adjustments to prevent unreasonable adjustments impact on nature reserve protection, in conjunction with relevant departments of the Ministry of environmental protection on the original of the adjustment provisions) has been modified.
Reporter: the adjustment provisions of amendment procedure
Heads: for do modified work, environmental Department led established has drafted working group, for widely in-depth research, seriously heard expert views, made has recommends version, and submitted by environmental protection Department, and development reform Board, and Technology Department, and Treasury, and homeland resources department, and housing in urban and rural areas construction, and traffic Transport Department, and original Mor, and water, and Ministry of agriculture, and forestry Council, and, Chinese Academy of Sciences, and marine Council, sector and the nature reserve related expert composed of national nature reserve Review Committee for has research discussion, Written request for 9 departments, such as the Legislative Affairs Office of the State Council and provinces (regions and cities). All localities and relevant departments agreed to modify the original regulations on adjustment is necessary, and put forward specific changes. I to a careful study of the views of the Department, be adopted and submitted to the State Council after the full communication and consultation agreement. State Council attaches great importance to the revisions, made a clear request, approval again after seeking the views of the Legislative Affairs Office of the State Council, issued on December 2.
Reporter: the main content of the adjustment provisions modified
Person in charge: adjusted for the current issues, the amendment in accordance with the "strict, scientific and standard" requirements, adhere to strict restructuring, scientific definition, classification, management, strengthening the principle of responsibility, making management more standardized and orderly adjustment, more rigorous, more transparent, and easier operation. This modified adding, modifying, merging, modifying article 8 article 4 1, the revised provision increased from 13 to 16. Modifications include:
One is to limit the adjustment justified. Original of the adjustment provisions of the lack of specific provisions on the adjustment reason, leading to adjust the randomness of nature reserves, it is difficult to achieve strict management. This modified, will adjustment reason is divided into three class, that: due to natural conditions occurred changes of, should according to main protection object Habitat range changes for adjustment; due to human activities frequently of, adjustment should only limited to nature reserve established zhiqian exists formed town or city main city, population intensive district, and ensure has important protection value of regional not pull; due to national major engineering construction needs for adjustment of, qualified for State approval, and approved of construction project, In the approval of the relevant departments of the State Council or the State Department authorized planning and construction projects will start construction in the near future. In addition, due to national defense reserve major projects need to be adjusted, exceptions have been made.
Second is to strictly adjust the length. The original made no provisions for adjusting the length of the adjustment provisions, resulting in some national nature reserve has just approved an application for adjustment, some reserve adjusted several times in succession. The revisions, the State Office of notifications concerning "nature reserve since the date of approved, in principle, revised shall be carried out in five years" requirements into specifications, while more strictly to the time limit due to major construction projects construction adjustments, namely "national nature reserve, due to major construction projects construction adjustments, shall not be adjusted again in principle".
Three is the embodiment of special protection. The lack of conservation priorities of the adjustment provisions provide, resulting in some habitats of rare and endangered species were called up a protected area, reducing the protection value, have a negative impact. The revisions and supplementary rules. Nature reserve, with a higher value, to be given special protection, adjust requirements more stringent, these include: the main protected objects in the world typical natural eco-systems of the same type or type is a world of rare and endangered, or is a unique or exceptional natural sites in the world, or included in the protected species at the national level nature reserve. These types of protected areas for adjustment, core can only be expanded, in principle, shall not be reduced or changed, ensure that the core of this nature reserve region-wide integrity, functional stability.
Four is the perfect adjustment procedure. Original of the adjustment provisions concerning adjustment procedures are less demanding, only some of the articles are not specific enough and clear, resulting in adjustment programmes demonstrate inadequate, insufficient public participation, decision science has also been an impact. This modified, on adjustment of program sexual provides for has full perfect, for due to national major engineering construction applications adjustment of, requires full investigation demonstration, sought related resources administrative competent sector, and reserves management institutions and around Community public of views; clear jury Office on material trial, and remote sensing monitoring and field visits of work links; provides adjustment Hou timely publishing area, and four to range and features Division figure, and does community pegging, and be bulletin.
Five to strengthen accountability. Original lack of accountability mechanisms of the adjustment provisions difficult to adjust work participants for effective checks and accountability, reduced the seriousness of adjustment management and authority. The modify, adjust all kinds of irregularities in the work improved the relevant provisions, such as unauthorised adjustment, arbitrarily change the protected area name, type, scope, boundaries, zoning, and not in accordance with the approved programme adjustment reserve; grounds for adjustment and data falsification, concealment, ordering the relevant responsible unit and the person responsible for rectification and investigated and dealt with according to law. And unauthorized adjustment causing serious threats to the protected object and the destruction of those responsible, and to administrative accountability. Establish a sound accountability mechanism, can adjust the work seriously, ensuring accountability, oversight and powerful.
Reporter: how to further strengthen the work of adjusting management
Person in charge: adjusted national nature reserve of the State Council issued regulations on the management of fully reflects the Party Central Committee and the State Council attaches to the work of nature reserves, strengthen adjustment of nature reserve management made a higher and more specific requirements. Adjusting regulations further clarify the scope of application of the provisions, adjust rationale, timelines, regulatory bodies, such as, improved reporting, reviewing, and approving procedures, established an information publication and bulletins, the accountability system. In particular, the amendment increases the threshold of national nature reserve adjustments, to protect high value, high degree of endangered protected areas to strictly limit adjustment, adjustment and reserves due to major construction projects construction made conditions more stringent reporting and review requirements, system to curb the encroachment of development and construction activities on the nature reserve. Modifications to adjustment provisions of the State Council a clear signal to the whole society, nature reserve is extremely important and valuable, important economic and strategic resource is the future of the country, not only contemporary, but also future generations Foundation of survival and development and the well-being of mankind, we have the responsibility and obligation to protect. Shall not be adjusted freely and changed the scope and function of nature reserve area, nature reserve adjustment exercise strict management also embodies the China as a responsible big country fulfill international obligations to protect biodiversity, protection of the ecological environment. Next we will do the following:
Is to enhance learning and advocacy. Environmental Protection Department, in conjunction with relevant organizations around the nature reserve authorities to study the adjustment regulations, using various media widely publicized, so that leading cadres at all levels and the public fully understand the importance of protecting biodiversity, the importance of the construction and management of nature reserves, expressly prohibited zone of nature reserve, has clearly defined the scope, no unit or individual shall not arbitrarily encroach and changes. Promote the protection and development of local governments at various levels to properly handle, short-term and long-term development, the relationship between local interests and global interests, consciously integrate nature into the agenda of Governments at all levels, and strict management, ensure that the full range of nature reserves, function stability, provide a powerful guarantee for national economic and social sustainable development.
Second, strengthen management work. Environmental protection departments will be notified, in conjunction with relevant departments to seriously implement the State Office, lead the implementation of the adjustment provisions. Adjusting to strictly carry out the program of nature reserves, nature reserve of any Department or unit will be allowed to change the nature, scope and functions of partition, not free to revoke the approval of the establishment of the nature reserve. Environmental protection departments to request adjustments through technological means such as satellite remote sensing to monitor nature reserve, and resolutely take solving problems left over by history may walk in the name of developing real adjustment of nature reserve resources. Continue to establish and perfect the adjustment of nature reserve management policy, improve national nature reserve, reviewed the Commission's organizational structure and management practices, increasing scientification of management and efficiency. In conjunction with the departments concerned adjusted according to the new regulations, has offered to revise the application of the State-level nature reserve, and is not eligible to return, declared material does not meet the requirements for rectification, revisited.
Third, strict law enforcement adjusted resolutely investigate and deal with illegal acts of nature reserves. Since 2009, the Ministry of environmental protection using remote sensing satellites monitored the national nature reserve of human activity, unauthorized adjustment of reserves and the Ribbon found a few protected areas, illegal development natural resources within protected areas, damaging the ecological environment. For these illegal acts, to urge Governments at all levels and relevant departments to ascertain the facts, dealt with severely. Resolutely correct the illegal adjustment reserves, returned to the legal fold, prospection pegging, and to the public. Caused serious consequences should be ordered to its rectification, restored, and those responsible be dealt with according to the law and responsibility.
Four is to increase local-level adjusted guidance for the management of nature reserves. As China's rapid economic and social development, economic construction and resource development pressures on the local nature reserve is also growing, some local-level nature reserves, especially at County and city level there are not properly established, scope and function of nature reserve area is not clear, feel free to adjust reserves and other phenomena, badly hit local nature reserve construction results, strengthening local-level natural reserve management work is very urgent. We would like to urge the environmental protection departments at all levels, in conjunction with the competent authorities in accordance with these provisions and revised local-level natural reserve and Ribbon to adjust for range adjustment and change the name of the management practices, conscientiously perform their functions, good management of local-level natural reserve adjustments.
(Original title: Department of environmental protection: put an end to resolve outstanding issues on behalf of development of nature reserve)
中新网12月11日电 据中国政府网消息，12月2日，国务院印发了《国家级自然保护区调整管理规定》。环境保护部负责人接受采访时表示，环保部门要通过卫星遥感等技术手段对申请调整的自然保护区进行监控，坚决杜绝借解决历史遗留问题之名而行开发自然保护区资源之实的调整。
以下是环保部负责人就《国家级自然保护区调整管理规定》答记者问全文：
记者：修改《调整规定》的必要性
负责人：党的十八大提出要大力推进生态文明建设，“必须树立尊重自然、顺应自然、保护自然的生态文明理念”，“扩大森林、湖泊、湿地面积，保护生物多样性”。《中共中央关于全面深化改革若干重大问题的决定》要求加快生态文明制度建设，实行最严格的源头保护制度，建立空间规划体系，划定生产、生活、生态空间开发管制界限，落实用途管制。要划定生态保护红线，坚定不移实施主体功能区划制度，建立国土空间开发保护制度。建设自然保护区是推进生态文明建设的具体行动和重要载体，是加强禁止开发区和生态保护红线管控的重要内容，是优化国土空间开发格局和保护生物多样性的主要措施。落实党的十八大和十八届三中全会精神，必须进一步强化自然保护区管理工作，提高自然保护区管理水平，确保国家生态安全。
国家级自然保护区是指在国内外有典型意义、在科学上有重大国际影响或者有特殊科学研究价值，并经国务院批准建立的自然保护区。国家级自然保护区调整，是指国家级自然保护区外部界限的扩大、缩小或保护区内外区域之间调换，或者内部核心区、缓冲区、实验区范围的调整。根据《自然保护区条例》有关规定，国家级自然保护区的范围调整由国务院批准。2002年，国务院印发了规范调整工作的《国家级自然保护区范围调整和功能区调整及更改名称管理规定》(国函【2002】5号)(以下简称《调整规定》)，确保了调整管理工作有规可循。
近年来，随着经济社会的快速发展，因工程建设、资源开发、城镇化推进及自然状况变化等原因，不少地方提出对国家级自然保护区进行调整，一些地方为了满足开发建设的需要，多次对保护区进行调整，压缩了自然保护区的空间，导致生境破碎化，物种生存条件恶化，对生态环境和生物多样性保护产生了严重影响。一些重要生态功能区域、涉及珍稀濒危物种的国家级自然保护区的调整已经引起国际国内的高度关注。
鉴于原《调整规定》存在着对个别调整工作的相关要求不够明确，界限不清，有些规定不完善，或有些必要的规定尚缺乏，调整程序有待进一步健全，以及责任追究机制尚未建立，特别是缺少对违法违规问题的处理依据等问题，已不适应当前国家级自然保护区调整管理工作的实际需求，有必要进行修改。根据《国务院办公厅关于做好自然保护区管理有关工作的通知》(国办发〔2010〕63号)(以下简称《国办通知》)的要求，为进一步严格国家级自然保护区调整工作，提高调整的科学性、规范性，防止不合理的调整对自然保护区保护成效造成冲击，环境保护部会同有关部门对原《调整规定》)进行了修改。
记者：《调整规定》的修改过程
负责人：为做好修改工作，环保部牵头成立了起草工作组，进行广泛深入调研，认真听取专家意见，提出了建议稿，并提交由环境保护部、发展改革委、科技部、财政部、国土资源部、住房城乡建设部、交通运输部、原铁道部、水利部、农业部、林业局、中国科学院、海洋局等部门及自然保护区相关专家组成的国家级自然保护区评审委员会进行了研究讨论，书面征求了国务院法制办等9个部门和各省(区、市)的意见。各地和有关部门一致认为，对原《调整规定》进行修改是必要的，并提出了具体修改意见。我部对各类意见进行了认真研究，基本予以采纳，在充分沟通协商达成一致意见后报国务院。国务院办公厅对此次修改工作十分重视，提出了明确要求，批准之前再次征求了国务院法制办的意见后，12月2日正式印发。
记者：《调整规定》修改的主要内容
负责人：针对当前调整工作中存在的突出问题，本次修改按照“严格、科学、规范”的要求，坚持严格调整、科学界定、分类处理、全程管理、强化责任的原则，使得调整管理工作更加规范有序、更加科学严谨、更加公开透明，同时更加便于操作。本次修改新增4条、修改8条、合并修改1条，修改后条文由13条增至16条。修改内容主要包括：
一是限定调整理由。原《调整规定》缺少关于调整理由的具体规定，导致自然保护区调整的随意性，难以实现严格管理。此次修改，将调整理由分为三类，即：因自然条件发生变化的，应根据主要保护对象生境范围变化进行调整；因人类活动频繁的，调整应仅限于自然保护区建立之前存在建制镇或城市主城区等人口密集区，并确保有重要保护价值的区域不调出；因国家重大工程建设需要进行调整的，限定为国务院审批、核准的建设项目，列入国务院或国务院授权有关部门批准的规划且近期将开工建设的建设项目。此外，对于因国防建设重大工程需要对保护区进行调整的，作出了例外规定。
二是严格调整年限。原《调整规定》没有对调整年限作出规定，导致有的国家级自然保护区刚刚批准即申请调整，有的保护区连续多次进行调整。此次修改，将《国办通知》中关于“自然保护区自批准建立之日起，原则上五年内不得进行调整”的要求纳入规定，同时对因重大工程建设调整的时限作出更为严格的规定，即“国家级自然保护区因重大工程建设调整后，原则上不得再次调整”。
三是体现特别保护。原《调整规定》缺少保护优先的规定，导致部分珍稀濒危物种的栖息地被调出了保护区，降低了保护价值，产生不利影响。此次修改，补充了相关规定。对具有较高价值的自然保护区，要予以特别保护，其调整要求更为严格，这类保护区包括：主要保护对象属全球同类型自然生态系统中的典型代表或属世界性珍稀濒危类型，或属世界上唯一或极特殊的自然遗迹，或列入国家一级重点保护物种的自然保护区。这类保护区进行调整，原则上核心区只能扩大，不得缩小或调换，确保这类自然保护区的核心区域范围完整、功能稳定。
四是完善调整程序。原《调整规定》关于调整程序的要求较少，仅有的条款也不够具体和明确，导致调整方案论证不够充分，公众参与程度不足，决策科学性也受到一定影响。此次修改，对调整的程序性规定进行了全面完善，对于因国家重大工程建设申请调整的，要求充分调查论证，征求相关资源行政主管部门、保护区管理机构和周边社区公众的意见；明确评委会办公室关于材料初审、遥感监测和实地考察的工作环节；规定调整后及时发布面积、四至范围和功能区划图，并确界立标、予以公告。
五是强化责任追究。原《调整规定》缺乏责任追究机制，难以对调整工作的各方参与者进行有效制约和责任追究，降低了调整管理工作的严肃性和权威性。此次修改，针对调整工作中的各类违规情况完善了相关规定，如未经批准擅自调整，擅自改变保护区名称、类型、范围、界限、功能区划；未按照批准方案调整保护区；调整理由及相关数据资料存在弄虚作假、隐瞒事实等，责令相关责任单位和责任人进行整改并依法查处。并对擅自调整导致保护对象受到严重威胁和破坏的相关责任人，要进行行政问责。建立健全责任追究机制，可以确保调整工作严肃认真、责任分明、监督有力。
记者：如何进一步加强调整管理工作
负责人：国务院印发《国家级自然保护区调整管理规定》充分体现了党中央、国务院对自然保护区工作的重视，对加强自然保护区调整管理工作提出了更高、更具体的要求。《调整规定》进一步明确了规定的适用范围、调整理由、时限要求、管理部门等，完善了申报、评审和审批程序，建立了信息发布和公告、责任追究等制度。特别是本次修改提高了国家级自然保护区调整的门槛，对保护价值较高、珍稀濒危程度高的保护区要严格限制调整，对因重大工程建设调整保护区提出了更加严格的申报条件和审查要求，从制度上遏制开发建设活动对自然保护区的侵占。国务院对调整规定的修改给全社会一个明确的信号，自然保护区具有极其重要的价值，是国家未来重要的经济和战略资源，不仅是当代人、更是子孙后代生存发展的基础，也是人类共同的福祉，我们有责任、有义务保护好。自然保护区范围和功能区不得随意调整和更改，对自然保护区调整工作从严管理也体现了中国作为负责任大国认真履行保护生物多样性、保护生态环境的国际义务。下一步我们将做好以下工作：
一是加强学习和宣传。环保部门将会同有关自然保护区主管部门组织各地认真学习《调整规定》，利用各种媒体广泛宣传，使各级领导干部和公众充分认识保护生物多样性的重要意义，建设和管理好自然保护区的重要性，明确自然保护区属于禁止开发区，范围有明确的界定，任何单位和个人不得随意侵占和更改。推动地方各级政府正确处理保护与发展、近期与长期发展、局部利益与全局利益的关系，自觉将自然保护区工作纳入各级政府的议事日程，严格管理，确保自然保护区的范围完整、功能稳定，为国家经济社会可持续发展提供有力保障。
二是强化调整管理工作。环保部门将会同有关部门认真落实《国办通知》，带头贯彻执行《调整规定》。自然保护区调整要严格履行程序，任何部门和单位不得擅自改变自然保护区性质、范围和功能分区，更不得随意撤销已批准建立的自然保护区。环保部门要通过卫星遥感等技术手段对申请调整的自然保护区进行监控，坚决杜绝借解决历史遗留问题之名而行开发自然保护区资源之实的调整。继续制定和完善自然保护区调整管理有关工作制度，完善国家级自然保护区评审委员会组织结构和管理办法，提高调整管理工作的科学性和工作效率。会同各有关部门根据新的调整管理规定，对已提出调整申请的国家级自然保护区进行梳理，不符合规定的要退回，申报材料不符合要求的要进行整改，重新审查。
三是严格执法坚决查处违法违规调整自然保护区的行为。2009年以来，环保部利用环境遥感卫星对国家级自然保护区人类活动进行了监测，发现少数保护区擅自调整保护区范围和功能区，违法违规开发保护区内自然资源，破坏生态环境。对这些违法违规行为，要督促各级政府和有关部门查清事实，严肃处理。坚决纠正对保护区范围违法违规调整，回到法定的范围，勘界立标，并向社会公示。对造成严重后果的要责令其限期整改、恢复原貌，并对相关责任人和责任单位依法依规予以处理。
四是加强对地方级自然保护区调整管理工作的指导。随着我国经济社会的快速发展，经济建设和资源开发对地方级自然保护区的压力也越来越大，一些地方级自然保护区，特别是市县级自然保护区存在建立不规范、范围和功能区不明确、随意调整保护区范围等现象，严重冲击地方级自然保护区建设成效，加强地方级自然保护区调整管理工作显得十分迫切。我们要敦促各级环保部门会同有关主管部门根据本规定制定和修改地方级自然保护区范围调整和功能区调整及更改名称的管理办法，认真履行职能，做好地方级自然保护区调整管理工作。
（原标题：环保部：杜绝以解决遗留问题名义开发自然保护区）
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