祁(qi)連(lian)(lian)山(shan)是(shi)重要(yao)的(de)國(guo)(guo)家(jia)生態(tai)安全屏障，也(ye)是(shi)自然保(bao)護(hu)區(qu)、森(sen)林公(gong)(gong)園、重點生態(tai)功能區(qu)、生物多樣性(xing)保(bao)護(hu)優先(xian)區(qu)域，但長期以來，祁(qi)連(lian)(lian)山(shan)局部生態(tai)破壞問題十分突出(chu)。2017年7月，中(zhong)(zhong)共中(zhong)(zhong)央辦公(gong)(gong)廳(ting)、國(guo)(guo)務院(yuan)辦公(gong)(gong)廳(ting)就(jiu)甘肅祁(qi)連(lian)(lian)山(shan)國(guo)(guo)家(jia)級自然保(bao)護(hu)區(qu)生態(tai)環(huan)境問題發出(chu)通報(bao)。

2018年(nian)(nian)7月，通過衛星遙感監測(ce)發(fa)現有(you)17處人(ren)類活動(dong)得到全部或部分拆除(chu)。一年(nian)(nian)過去了，祁(qi)連(lian)山綠色已開始重生(sheng)(sheng)，但生(sheng)(sheng)態保(bao)護(hu)與(yu)恢復還在路上。為此，生(sheng)(sheng)態監測(ce)評估要繼續按照“嚴、真(zhen)、細、實、快”的要求，開創生(sheng)(sheng)態環境工作(zuo)新局面，共同推進美麗中國建設。

切實做好生態監(jian)測(ce)評估業務

生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)環(huan)(huan)境(jing)是(shi)人類社會生(sheng)(sheng)(sheng)(sheng)存(cun)和(he)發展的根本(ben)。正確處(chu)理(li)生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)環(huan)(huan)境(jing)保護(hu)與(yu)社會經濟發展的關系，已成為事關全局的重大問題。生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)環(huan)(huan)境(jing)問題歸根到底是(shi)因(yin)為缺(que)乏生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)紅線和(he)敬畏自然(ran)(ran)的意(yi)識，盲目追求(qiu)經濟發展而無節制地向大自然(ran)(ran)攫取，對自然(ran)(ran)資源過度開發和(he)粗(cu)放利(li)用造(zao)成的。祁連山生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)破壞事件就是(shi)實證。自然(ran)(ran)生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)監管(guan)職責履(lv)行得好(hao)不好(hao)，關鍵在于生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)監測(ce)(ce)(ce)(ce)評估業(ye)務做得好(hao)不好(hao)、生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)監測(ce)(ce)(ce)(ce)評估數據質量可(ke)(ke)靠不可(ke)(ke)靠。生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)監測(ce)(ce)(ce)(ce)評估數據是(shi)生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)監測(ce)(ce)(ce)(ce)評估工(gong)作的生(sheng)(sheng)(sheng)(sheng)命線，是(shi)實施生(sheng)(sheng)(sheng)(sheng)態(tai)(tai)保護(hu)管(guan)理(li)與(yu)決(jue)策(ce)的基(ji)本(ben)依據。

生(sheng)(sheng)態監(jian)(jian)測評估是(shi)生(sheng)(sheng)態監(jian)(jian)督執法的耳目，讓生(sheng)(sheng)態保護(hu)(hu)(hu)(hu)監(jian)(jian)督執法更加精、準(zhun)、狠。2017年甘肅祁連山(shan)國家(jia)級(ji)自然(ran)保護(hu)(hu)(hu)(hu)區(qu)生(sheng)(sheng)態環境(jing)問(wen)題督查(cha)中(zhong)(zhong)，利用高分辨率衛(wei)星遙感數據定量提取(qu)(qu)的人(ren)類(lei)活(huo)(huo)動(dong)(dong)專題信息，為督查(cha)工作提供(gong)了最(zui)為直接的證據資(zi)料。按照《自然(ran)保護(hu)(hu)(hu)(hu)區(qu)人(ren)類(lei)活(huo)(huo)動(dong)(dong)遙感監(jian)(jian)測及核(he)查(cha)處理辦法（試行）》，每年對國家(jia)級(ji)和(he)省級(ji)自然(ran)保護(hu)(hu)(hu)(hu)區(qu)人(ren)類(lei)活(huo)(huo)動(dong)(dong)例行開(kai)展兩次(ci)和(he)一次(ci)監(jian)(jian)測，定量獲取(qu)(qu)人(ren)類(lei)活(huo)(huo)動(dong)(dong)位(wei)置、面積、類(lei)型等專題信息。由衛(wei)星環境(jing)應用中(zhong)(zhong)心首次(ci)完成的2015年國家(jia)級(ji)自然(ran)保護(hu)(hu)(hu)(hu)區(qu)“全覆蓋”監(jian)(jian)測，發(fa)現446個保護(hu)(hu)(hu)(hu)區(qu)共有(you)人(ren)類(lei)活(huo)(huo)動(dong)(dong)15.6萬處，總面積2.8萬平(ping)方公(gong)里(li)，直接服(fu)務于“綠(lv)盾”自然(ran)保護(hu)(hu)(hu)(hu)區(qu)監(jian)(jian)督檢查(cha)專項行動(dong)(dong)和(he)中(zhong)(zhong)央環境(jing)保護(hu)(hu)(hu)(hu)督察等。

生(sheng)態(tai)監測(ce)評(ping)估是(shi)決(jue)策管(guan)理(li)的基石，讓(rang)生(sheng)態(tai)保(bao)(bao)護(hu)決(jue)策更(geng)有依據，讓(rang)生(sheng)態(tai)保(bao)(bao)護(hu)管(guan)理(li)更(geng)“接地氣(qi)”。2000年以來(lai)，生(sheng)態(tai)環境部(bu)（原環境保(bao)(bao)護(hu)總局、原環境保(bao)(bao)護(hu)部(bu)）聯合中國(guo)科(ke)學院等先后完成了3次全國(guo)生(sheng)態(tai)狀(zhuang)況調查評(ping)估，全面獲取(qu)不同時期我(wo)國(guo)生(sheng)態(tai)狀(zhuang)況及其變化的第一手(shou)資料(liao)，為生(sheng)態(tai)環境保(bao)(bao)護(hu)和國(guo)民(min)經濟建設決(jue)策提供(gong)重要科(ke)學依據。

作(zuo)(zuo)為生(sheng)(sheng)態(tai)(tai)監(jian)測評(ping)估業務(wu)化運行單位，衛(wei)星環境應(ying)用中(zhong)心生(sheng)(sheng)態(tai)(tai)部主要(yao)負責(ze)開(kai)展(zhan)自然保護(hu)(hu)(hu)區(qu)、生(sheng)(sheng)態(tai)(tai)保護(hu)(hu)(hu)紅(hong)線、國家(jia)公園、生(sheng)(sheng)物(wu)多(duo)樣性保護(hu)(hu)(hu)優先區(qu)等生(sheng)(sheng)態(tai)(tai)保護(hu)(hu)(hu)重要(yao)區(qu)域的(de)(de)監(jian)測評(ping)估，負責(ze)定期開(kai)展(zhan)全(quan)國生(sheng)(sheng)態(tai)(tai)狀況調查評(ping)估任務(wu)，每年分析處理(li)數萬幅衛(wei)星遙(yao)感影像數據(ju)，為生(sheng)(sheng)態(tai)(tai)保護(hu)(hu)(hu)監(jian)管(guan)提(ti)供基(ji)礎數據(ju)支撐。衛(wei)星環境應(ying)用中(zhong)心生(sheng)(sheng)態(tai)(tai)部已將鐵軍(jun)精神(shen)融(rong)入日(ri)常工作(zuo)(zuo)，堅決維(wei)護(hu)(hu)(hu)黨中(zhong)央權威(wei)和(he)集(ji)中(zhong)統(tong)一領(ling)導(dao)，堅決擔(dan)負起生(sheng)(sheng)態(tai)(tai)文明(ming)建(jian)設的(de)(de)政治責(ze)任，堅持(chi)矢志不渝(yu)的(de)(de)信念、眾志成城的(de)(de)團結、責(ze)無(wu)旁(pang)貸的(de)(de)擔(dan)當(dang)、堅毅頑強的(de)(de)作(zuo)(zuo)風、廉(lian)潔(jie)奉公的(de)(de)態(tai)(tai)度，提(ti)高自身的(de)(de)業務(wu)水(shui)平和(he)技術(shu)本(ben)領(ling)。

構(gou)建三大體系，增強技術支(zhi)撐能力

李干杰(jie)部長在生態(tai)(tai)環(huan)境(jing)部召開(kai)的(de)慶祝中(zhong)國共產黨成立97周年(nian)暨“兩優(you)一(yi)先”表彰大(da)會上強調，用(yong)每一(yi)個環(huan)保(bao)人的(de)情(qing)懷和行動，打造一(yi)支生態(tai)(tai)環(huan)境(jing)保(bao)護(hu)鐵軍，為堅決打好污染防治(zhi)攻堅戰、推進生態(tai)(tai)文明和建設美麗中(zhong)國作(zuo)出新的(de)更大(da)貢(gong)獻。作(zuo)為綠水(shui)青山的(de)守護(hu)者，必須秉承不變(bian)的(de)情(qing)懷，不忘初心，砥礪前行，不斷創新和增強生態(tai)(tai)保(bao)護(hu)技術本領，提升生態(tai)(tai)保(bao)護(hu)監管(guan)技術支撐能力，達(da)到“嚴、真、細、實、快”的(de)水(shui)準。

一是(shi)構建(jian)協同運(yun)(yun)行的天地一體(ti)化(hua)(hua)(hua)(hua)生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)監(jian)(jian)管(guan)(guan)(guan)能(neng)力體(ti)系(xi)(xi)。面(mian)對生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)監(jian)(jian)管(guan)(guan)(guan)“面(mian)廣、量大”的業(ye)(ye)務特點，生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)監(jian)(jian)管(guan)(guan)(guan)業(ye)(ye)務以衛(wei)星(xing)遙感(gan)技術(shu)(shu)為(wei)主要(yao)驅動(dong)。基于“天—空—地”一體(ti)化(hua)(hua)(hua)(hua)監(jian)(jian)測技術(shu)(shu)體(ti)系(xi)(xi)，建(jian)設(she)和(he)完善生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)綜(zong)合監(jian)(jian)測網絡體(ti)系(xi)(xi)，形(xing)成生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)日常監(jian)(jian)測和(he)數據獲(huo)取能(neng)力。運(yun)(yun)用云(yun)計算、物聯網等(deng)信(xin)息化(hua)(hua)(hua)(hua)手段(duan)，形(xing)成生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)綜(zong)合監(jian)(jian)管(guan)(guan)(guan)和(he)分析預(yu)警(jing)能(neng)力，全面(mian)掌握生(sheng)(sheng)(sheng)(sheng)態系(xi)(xi)統構成、分布與(yu)動(dong)態變(bian)化(hua)(hua)(hua)(hua)，及時評估和(he)預(yu)警(jing)生(sheng)(sheng)(sheng)(sheng)態風(feng)險，提高生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)管(guan)(guan)(guan)理(li)決(jue)策科(ke)學化(hua)(hua)(hua)(hua)水(shui)平。推動(dong)建(jian)立生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)監(jian)(jian)管(guan)(guan)(guan)業(ye)(ye)務化(hua)(hua)(hua)(hua)運(yun)(yun)行所需要(yao)的技術(shu)(shu)隊伍和(he)技術(shu)(shu)標準規范(fan)體(ti)系(xi)(xi)，將(jiang)國(guo)家、省、市、縣等(deng)各級技術(shu)(shu)單位(wei)和(he)管(guan)(guan)(guan)理(li)單位(wei)的職(zhi)責制度(du)化(hua)(hua)(hua)(hua)，實現生(sheng)(sheng)(sheng)(sheng)態保(bao)(bao)(bao)(bao)護(hu)(hu)監(jian)(jian)管(guan)(guan)(guan)的業(ye)(ye)務化(hua)(hua)(hua)(hua)和(he)常態化(hua)(hua)(hua)(hua)運(yun)(yun)行。

二是構建(jian)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)區(qu)(qu)域(yu)(yu)和(he)開發建(jian)設(she)活(huo)(huo)動的(de)全生(sheng)(sheng)(sheng)命(ming)周期管(guan)理(li)業務體系(xi)。面(mian)向重要生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)空間(jian)和(he)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)重要區(qu)(qu)域(yu)(yu)，特別是生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)紅(hong)線、自(zi)然(ran)保(bao)護(hu)地(di)、國(guo)家公園等(deng)各類保(bao)護(hu)地(di)，基(ji)于(yu)臺(tai)賬管(guan)理(li)思路(lu)，對(dui)重要生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)空間(jian)和(he)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)重要區(qu)(qu)域(yu)(yu)及(ji)區(qu)(qu)域(yu)(yu)內的(de)每(mei)個(ge)管(guan)理(li)單元、每(mei)個(ge)開發建(jian)設(she)活(huo)(huo)動斑塊，按(an)照規則(ze)編制唯一(yi)編碼，建(jian)立(li)全鏈條和(he)全生(sheng)(sheng)(sheng)命(ming)周期的(de)管(guan)理(li)業務體系(xi)。以(yi)此為基(ji)礎，集(ji)成分(fen)析生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)監測評估結果(guo)，定(ding)量核算生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)區(qu)(qu)域(yu)(yu)的(de)各種(zhong)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)系(xi)統(tong)類型（特別是自(zi)然(ran)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)系(xi)統(tong)）面(mian)積和(he)用地(di)性質的(de)變化(hua)，分(fen)析自(zi)然(ran)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)空間(jian)“生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)盈(ying)虧(kui)”及(ji)其流向；定(ding)量分(fen)析生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)系(xi)統(tong)主導服(fu)務功(gong)能的(de)變化(hua)情況(kuang)(kuang)，分(fen)析生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)服(fu)務功(gong)能“生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)盈(ying)虧(kui)”及(ji)其變化(hua)原(yuan)因。對(dui)于(yu)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)管(guan)控邊界調整的(de)情況(kuang)(kuang)，進行生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)面(mian)積空間(jian)對(dui)比和(he)臺(tai)賬變更；對(dui)于(yu)動態(tai)(tai)(tai)(tai)(tai)監測開發建(jian)設(she)活(huo)(huo)動的(de)改擴建(jian)情況(kuang)(kuang)，鑒別生(sheng)(sheng)(sheng)產經營活(huo)(huo)動是否遵守生(sheng)(sheng)(sheng)態(tai)(tai)(tai)(tai)(tai)保(bao)護(hu)管(guan)理(li)制度。

三是構建(jian)(jian)(jian)面向績效考核的(de)生(sheng)態(tai)(tai)狀況(kuang)及變化綜(zong)合(he)評估業務體系。綜(zong)合(he)運用財稅、金融(rong)、法(fa)(fa)律、監(jian)管(guan)等(deng)手段(duan)，建(jian)(jian)(jian)立政(zheng)府主導(dao)、社會參與、權責統(tong)一、獎懲(cheng)(cheng)并重的(de)生(sheng)態(tai)(tai)保護(hu)監(jian)管(guan)機制。建(jian)(jian)(jian)立政(zheng)策性獎懲(cheng)(cheng)制度(du)，通(tong)過與通(tong)報制度(du)相結合(he)，使(shi)生(sheng)態(tai)(tai)保護(hu)和(he)監(jian)管(guan)的(de)調(diao)控手段(duan)多元化，形成獎懲(cheng)(cheng)結合(he)的(de)后續(xu)處理制度(du)體系。切實發揮好生(sheng)態(tai)(tai)保護(hu)紅線監(jian)管(guan)和(he)綜(zong)合(he)監(jian)管(guan)結果在財政(zheng)資(zi)金分(fen)配過程中的(de)杠桿(gan)調(diao)節作用，對現有的(de)生(sheng)態(tai)(tai)轉移支付資(zi)金、能力(li)(li)建(jian)(jian)(jian)設(she)(she)資(zi)金等(deng)調(diao)增(zeng)或者(zhe)調(diao)減，進而形成“我要保護(hu)”的(de)局面。如每年(nian)度(du)開展的(de)國(guo)家級和(he)省(sheng)級自然(ran)保護(hu)區人類活動監(jian)測結果，應作為自然(ran)保護(hu)區能力(li)(li)建(jian)(jian)(jian)設(she)(she)資(zi)金分(fen)配和(he)調(diao)整的(de)基礎依據，避(bi)免出(chu)現一邊(bian)違(wei)(wei)法(fa)(fa)違(wei)(wei)規(gui)搞著生(sheng)態(tai)(tai)破壞、一邊(bian)拿著高額能力(li)(li)建(jian)(jian)(jian)設(she)(she)資(zi)金的(de)現象(xiang)。