江西　創(chuàng)新大湖治理模式　守護(hù)候鳥希望家園

鄱陽湖位于長江中下游南岸、江西省北部，為中國最大的淡水湖。濱湖涉及南昌、九江、上饒3個(gè)設(shè)區(qū)市及南昌、新建、進(jìn)賢、永修、共青城、廬山、濂溪、湖口、都昌、鄱陽、余干、萬年12個(gè)縣（市、區(qū)），沿湖涉水鄉(xiāng)鎮(zhèn)98個(gè)，人口 360余萬人。鄱陽湖是一個(gè)吞吐型、季節(jié)性的湖泊，不同季節(jié)湖體面積相差極大，豐水期最高水位時(shí)，湖體面積約4550平方公里，枯水期最低水位時(shí)僅239平方公里。鄱陽湖水系流域上承接贛河、撫河、信河、饒河、修河五河之水，經(jīng)九江市湖口縣域注入長江，年平均徑流量約占長江徑流量的15%。

鄱陽湖既是我國最大的淡水湖，也是整個(gè)“東亞一澳大利西亞”候鳥遷飛區(qū)中最重要的候鳥棲息地。鄱陽湖“豐水一片，枯水一線”的自然水文節(jié)律和枯水期星羅棋布的碟形湖是吸引這些鳥類前來的重要因素。得天獨(dú)厚的自然條件使鄱陽湖成為世界自然基金會(huì)劃定的全球重要生態(tài)區(qū)之一，現(xiàn)有鳥類310種，素有“白鶴世界”“珍禽王國”和“候鳥天堂”的美譽(yù)。淡水魚種類150余種，貝類87種，水生維管束植物102種，在長江流域發(fā)揮著巨大的調(diào)蓄洪水和保護(hù)生物多樣性等特殊生態(tài)功能。

作為東亞最重要的候鳥棲息地，每年有70余萬只候鳥在此過冬。在鄱陽湖的眾多鳥類中，白鶴不僅是鄱陽湖的明星物種，也是江西省的省鳥，是江西最有代表性的野生動(dòng)物之一。

白鶴是一種全球性極危的大型涉禽，它們夏季在俄羅斯西伯利亞繁衍后代，秋季南下越冬。在過去，南亞的印度、西亞的伊朗和我國長江中下游濕地都有白鶴的越冬種群，但由于生態(tài)環(huán)境喪失和偷獵等原因，如今全世界90%的白鶴都聚集在鄱陽湖越冬，每年的種群數(shù)量超過5000只，鄱陽湖成了這個(gè)物種延續(xù)最后的希望之地。

白鶴等珍稀候鳥的選擇，成為鄱陽湖生態(tài)環(huán)境逐年改善的最佳“代言人”與注解。鄱陽湖不僅成為種類繁多的鳥類賴以生存的家園，也是長江江豚和許多魚類的庇護(hù)所。

5月，本刊記者沿鄱陽湖走訪了九江、上饒、南昌等市縣區(qū)，了解江西公安在深化聯(lián)誼聯(lián)防機(jī)制，創(chuàng)新大湖治理模式，為打造國家生態(tài)文明建設(shè)高地貢獻(xiàn)公安力量的具體舉措。

鄱陽湖區(qū)聯(lián)誼聯(lián)防聯(lián)治機(jī)制

鄱陽湖交界市、縣多、管理部門多，為了解決“九龍治水”問題，防止出現(xiàn)地方保護(hù)主義和推諉塞責(zé)現(xiàn)象，2003年，在江西省委、政法委的統(tǒng)一部署下，成立了江西省公安廳等8個(gè)省直部門及南昌、九江、上饒3個(gè)設(shè)區(qū)市，12個(gè)濱湖縣（市、區(qū)）黨委、政府參與的鄱陽湖區(qū)聯(lián)誼聯(lián)防聯(lián)治工作領(lǐng)導(dǎo)小組，小組辦公室設(shè)在江西省公安廳水警總隊(duì)，負(fù)責(zé)統(tǒng)籌協(xié)調(diào)鄱陽湖的綜合治理工作。

20年多來，聯(lián)誼聯(lián)防聯(lián)治工作領(lǐng)導(dǎo)小組每年在沿湖12縣（市、區(qū)）輪流召開一次年會(huì)，總結(jié)經(jīng)驗(yàn)，表彰先進(jìn)，分析形勢(shì)，研究部署下一步工作，并向沿湖12個(gè)縣（市、區(qū)）黨政主要領(lǐng)導(dǎo)下發(fā)《湖區(qū)矛盾問題化解整治暨基層基礎(chǔ)建設(shè)責(zé)任書》，壓實(shí)地方黨委政府“屬地管理”主體責(zé)任，源頭化解湖區(qū)矛盾糾紛，推進(jìn)地區(qū)和部門基層基礎(chǔ)建設(shè)。省、市、縣、鄉(xiāng)四級(jí)牢固樹立全省“一盤棋”思想，由各自為政到通力協(xié)作，嚴(yán)防嚴(yán)打湖區(qū)非法捕撈、非法采砂、非法獵殺候鳥、非法圍堰等突出問題，創(chuàng)建了感情聯(lián)誼、治安聯(lián)防、糾紛聯(lián)調(diào)、問題聯(lián)治、平安聯(lián)建的湖區(qū)綜合治理新機(jī)制。湖區(qū)逐步實(shí)現(xiàn)了由亂到治、由治到安，“大打三六九、小打天天有”的治安亂象得到有效治理。

鄱陽湖禁捕退捕后，湖區(qū)沒有發(fā)生捕撈權(quán)屬糾紛，退捕過程十分平穩(wěn)，湖區(qū)社會(huì)治安持續(xù)穩(wěn)定，生態(tài)環(huán)境明顯改善。聯(lián)誼聯(lián)防聯(lián)治機(jī)制成為江西省“大湖治理”特色品牌，得到中央政法委、公安部的充分肯定。

鄱陽湖聯(lián)合巡邏執(zhí)法

為了更好地提高鄱陽湖區(qū)快速反應(yīng)能力，在江西省委政法委的部署指揮下，2016年6月，江西省公安廳牽頭江西省農(nóng)業(yè)農(nóng)村廳、省水利廳、省交通運(yùn)輸廳、省林業(yè)局在鄱陽湖蛇山島設(shè)立省級(jí)聯(lián)合巡邏執(zhí)法點(diǎn)。2019年7月，設(shè)在蛇山島的聯(lián)勤指揮中心正式投入使用。

蛇山島原為鄱陽湖上一座無人居住的小島，占地面積169畝，地處南昌市新建區(qū)、九江市都昌縣、上饒市鄱陽縣、余干縣3市4縣交界的鄱陽湖交通要道，行政區(qū)劃為都昌縣管轄。蛇山島東面是鄱陽縣雙港鎮(zhèn)、蓮湖鄉(xiāng)，南面是余干縣康山鄉(xiāng)，西面是新建區(qū)南磯山鄉(xiāng)，北面是都昌縣周溪鎮(zhèn)，蛇山島位于湖區(qū)中央位置，到各個(gè)方向距離和用時(shí)接近。該水域魚類資源豐富，水域界限交叉不清，歷來是漁民捕撈場(chǎng)所的必爭(zhēng)之地，歷史上曾多次發(fā)生糾紛械斗事件。

為維護(hù)鄱陽湖的安全與生態(tài)保護(hù)，九江市設(shè)立1個(gè)市級(jí)聯(lián)合巡邏執(zhí)法點(diǎn)，新建、都昌、永修、鄱陽、余干5個(gè)縣設(shè)立縣級(jí)聯(lián)合巡邏執(zhí)法點(diǎn)，與省級(jí)聯(lián)合巡邏執(zhí)法遙相呼應(yīng)、互為支援，打造最快出警處置圈。至今，沿湖12個(gè)縣均建立了聯(lián)合巡邏執(zhí)法點(diǎn)，并推廣到沿長江4個(gè)縣，實(shí)現(xiàn)了沿江沿湖全覆蓋。

其中，省級(jí)聯(lián)合巡邏執(zhí)法點(diǎn)實(shí)行周輪班制，每周分別由公安廳、農(nóng)業(yè)農(nóng)村廳、水利廳、交通運(yùn)輸廳1名處級(jí)干部帶隊(duì)，公安、農(nóng)業(yè)農(nóng)村、水利、交通運(yùn)輸、林業(yè)廳派1名干部參與。每天24小時(shí)利用雷達(dá)、視頻監(jiān)控、船、車、無人機(jī)對(duì)湖區(qū)重點(diǎn)水域開展動(dòng)態(tài)巡邏執(zhí)法，現(xiàn)場(chǎng)發(fā)現(xiàn)問題、查處案件、調(diào)處糾紛，調(diào)度各縣級(jí)聯(lián)合巡邏執(zhí)法點(diǎn)在當(dāng)?shù)厮蜷_展巡邏執(zhí)法。聯(lián)合巡邏執(zhí)法點(diǎn)的設(shè)立，有效解決了發(fā)現(xiàn)不了、控制不住、處置不及時(shí)的問題，大量矛盾糾紛在初始階段就被化解，為湖區(qū)安全穩(wěn)定和生態(tài)改善發(fā)揮了不可替代的作用，豐富了江西省“大湖治理”的特色品牌。

打擊生態(tài)資源犯罪 推動(dòng)長江大保護(hù)

2020年1月，中央做出長江流域重點(diǎn)水域禁捕（以下稱“十年禁漁”）重大決策部署后，江西省公安廳在省委、省政府和公安部的堅(jiān)強(qiáng)領(lǐng)導(dǎo)下，在全國率先成立省、市、縣三級(jí)公安長江大保護(hù)工作機(jī)構(gòu)，以前所未有的重視程度、前所未有的工作力度，嚴(yán)防嚴(yán)打非法捕撈、非法采砂、非法獵殺候鳥等破壞湖區(qū)生態(tài)資源犯罪行為，整治湖區(qū)突出問題，推動(dòng)湖區(qū)執(zhí)法基層基礎(chǔ)建設(shè)。

2020年以來，退捕漁民群體和漁區(qū)漁村保持穩(wěn)定，湖區(qū)漁網(wǎng)、漁船星羅棋布的現(xiàn)象不復(fù)存在，連續(xù)多年未發(fā)生涉漁涉砂涉鳥重大案件。湖區(qū)水生生物多樣性逐步豐富，魚類種群結(jié)構(gòu)進(jìn)一步優(yōu)化。如刀魚數(shù)量明顯增加，產(chǎn)卵個(gè)體數(shù)量增加并呈現(xiàn)二個(gè)高峰期；江豚種群穩(wěn)中有升，幼豚比例上升。據(jù)2022年農(nóng)業(yè)農(nóng)村部監(jiān)測(cè)，湖區(qū)江豚數(shù)量達(dá)492頭，相比5年前增加35頭，南昌水域都能看到江豚。

2020年以來，江西禁捕退捕工作連續(xù)3年國家考核名列前茅。公安部剛公布的2022年度長江十年禁漁考核，江西公安位列全國第一方陣，努力為打造美麗中國“江西樣板”貢獻(xiàn)公安力量。

（責(zé)任編輯：張敏嬌）

Jiangxi’s Innovation in Lake Managementto Protect Migratory Birds

Written by Zhang Minjiao， Gu Jing Correspondence by Zeng Fangzhou

Poyang Lake， China's largest freshwater lake， extends across the northern part of Jiangxi Province， south of the middle and lower reaches of the Yangtze River. Around 3.6 million people reside in 98 towns and 12 counties around the lake， each belonging to one of three cities： Nanchang， Jiujiang， and Shangrao. As a seasonal one， the lake covers areas varying greatly throughout the year， from 239 km2 in the dry season to 4，550 km2 in the flood season. The lake receives water from five rivers： the Gan River， Fu River， Xin River， Rao River， and Xiu River， and discharges into the Yangtze River through Hukou County of Jiujiang City， with an average annual runoff of about 15% that of the Yangtze River.

Due to its natural hydrological cycles of high and low water， especially its scattered disc-shaped lakes during the dry season， Poyang Lake has become the most important habitat for migratory birds on the route from East Asia to Australia. Often hailed as the "World of White Cranes"，the "Kingdom of Rare Birds"，and the "Heaven of Migratory Birds"，this naturally endowed lake has been designated by the World Wide Fund for Nature （WWF） as a major global ecological reserve， sheltering 310 bird species. In addition， the lake also provides sanctuary for over 150 species of fresh fish， 87 species of shellfish， and 102 species of aquatic plants， serving the function of both flood control and biodiversity conservation along the Yangtze River.

As the most important habitat for migratory birds in East Asia， the lake attracts more than 700，000 birds to spend the winter. Prominent among these visitors is the Siberian white crane， an emblematic bird for Jiangxi Province and a symbol of its most iconic wildlife.

The Siberian white crane is a critically endangered large wading bird in the world. It breeds in Siberia， Russia during the summer and migrates south for the winter. Historically， these cranes had three wintering grounds： India， Iran， and the wetlands along the middle and lower reaches of China's Yangtze River. However， due to habitat loss and poaching， 90% of the global population （that's over 5，000 birds） seek refuge in Poyang Lake for the winter. The lake has become the species' last hope for survival.

The choice of these cranes， along with other rare migratory birds， is the best testimony and annotation to the constant ecological improvement of Poyang Lake. The lake is a haven not only for diverse birds， but also for the Yangtze finless porpoise and various fish species.

After visiting Jiujiang， Shangrao， Nanchang and other cities and counties along Poyang Lake in May， the editor of this magazine gained an insight into the work of Jiangxi's public security forces. They have been enhancing the coordination mechanisms and innovating the lake management strategies， thereby establishing the area as a national paragon of ecological conservation.

The Coordination Mechanism of Poyang Lake

To curb local protectionism and evasion of responsibility plaguing the overlapping jurisdictions of various counties and cities， the Poyang Lake Coordination Mechanism Task Force was established in 2003 under the collective guidance of the Jiangxi Provincial Party Committee and the Political and Legal Affairs Committee. Based at the Marine Police Brigade of the Jiangxi Provincial Public Security Department， the task force is dedicated to coordinating the comprehensive management of Poyang Lake through a collaborative approach involving 8 provincial departments， including the Jiangxi Provincial Public Security Department， 3 cities of Nanchang， Jiujiang and Shangrao， and 12 counties around the lake.

Over the past two decades， the task force has organised an annual meeting in each of the 12 counties along the lake on a rotating basis to summarise experiences， commend exemplary practices， and outline subsequent actions. It has issued the Responsibility Statement for Dispute Resolution and Grassroots Development around Poyang Lake to the Party and government leaders of the 12 counties， which has proven to be instrumental in reinforcing the accountability of the local Party committees in jurisdiction management， preventing conflicts and disputes at the source， and fostering the grassroots development of localities and relevant departments. Adhering to the province's holistic governance philosophy， all cities， counties， and townships along the lake have moved away from isolated management styles and embraced more collaborative approaches to combating illegal activities， such as fishing， sand mining， poaching migratory birds， and the construction of unauthorized cofferdams. With the introduction of the new comprehensive governance mechanism， the lake area has transitioned from a state of chaos to one of order and security.

Since the implementation of no-take and catch-and-release policies， no disputes over fishing rights have arisen in the lake area. The smooth execution of the policies has not only maintained social stability but also facilitated ecological progress. The coordination mechanism has been recognised by the Committee of Political and Legal Affairs under the Central Committee of the Communist Party of China and the Ministry of Public Security as a hallmark of Jiangxi's lake management approaches.

The Joint Patrol System of Poyang Lake

To improve the response capabilities of the lake area， a joint command centre was inaugurated on Sheshan Island in Poyang Lake in June 2016. This initiative， led by the Jiangxi Provincial Party Committee of Political and Legal Affairs and guided by the Jiangxi Provincial Public Security Department， was a collaborative effort among the Jiangxi Provincial Department of Agriculture and Rural Affairs， the Provincial Department of Water Resources， the Provincial Department of Transportation， and the Provincial Forestry Administration. To further bolster operational capacity， the Joint Patrol Command Centre on Sheshan Island was officially launched in July 2019.

Once an uninhabited island of 169 mu （approximately 11.27 hectares）， Sheshan Island under the jurisdiction of Duchang County has now become a major passage of Poyang Lake at the junction of New Area of Nanchang City， Duchang County of Jiujiang City， Poyang County and Yugan County of Shangrao City. Right in the middle of the lake， the island is almost equally far to Shuanggang and Lianhu townships in Poyang County in the east， Kangshan Township in Yugan County in the south， Nanjishan Township in Xinjian District in the west， and Zhouxi Township in Duchang County in the north. With abundant fish resources， the waters， however， lack clear boundaries between the surrounding townships. The waters have always been a strategic point of contention， inducing multiple armed conflicts in history.

To complement and facilitate the provincial joint patrol and law enforcement， and to speed up the processing of cases， a city-level joint patrol team and five county-level teams have been established in the city of Jiujiang and the counties of XinJian， Duchang， Yongxiu， Poyang， and Yugan. These teams are tasked with maintaining the security and ecological protection of Poyang Lake. The joint patrol system has achieved full coverage across all 12 counties around Poyang Lake， and has been extended to 4 more counties along the Yangtze River.

Among the joint patrol teams at various levels， the provincial team operates on a weekly shift model， comprising four directors from the Public Security， Agriculture and Rural Development， Water Resources， and Transportation departments， and five members respectively from the previous departments and forestry department. Beside， they employ a range of surveillance and patrol tools around the clock， including radar， CCTV， boats， vehicles， and drones. Beyond meticulously monitoring critical waterways to identify issues and conduct immediate investigations and dispute mediations， they also make plans for joint patrol operations by the county-level teams. Together， these joint patrol teams have effectively tackled elusive problems and prevented numerous conflicts and disputes. They play an essential role in maintaining local safety and stability， and their substantial contributions to ecological enhancement have significantly enriched Jiangxi's approaches to lake management.

The Crackdown on Ecological Crimes

In January 2020， China's central government made a strategic decision： to ban fishing in the key waters of the Yangtze River for 10 years. In response， the Jiangxi Provincial Public Security Department， guided by the provincial Party Committee， the provincial government， and the Ministry of Public Security， spearheaded the establishment of a three-tiered public security agency linking the provincial， city， and county levels in the coordinated protection of the Yangtze River. This agency has steadfastly dedicated itself to cracking down on illegal activities detrimental to the lake's ecology， such as fishing， sand mining， and the hunting of migratory birds. While addressing these prominent problems， it has also helped promote grassroots law enforcement.

Since the implementation of the catch-and-release policy in 2020， the former fishermen and fishing villages have remained calm， and there have been no significant incidents of fishing， sand mining， or bird hunting. The fishing nets and boats that used 78b3febb706e95dbd335fd602677032e7dc502054a358d13c04f726cd0e6570eto dot the lake area have disappeared entirely. The lake area has also seen its aquatic biodiversity enriched and its fish population structure optimized. For instance， there has been a notable increase in the number of swordfish， with two distinct peaks： the spawning population and the finless porpoise population， with a higher ratio of juveniles. The Ministry of Agriculture and Rural Affairs reports that， as of 2022， there are 492 finless porpoises in the lake area， an increase of 35 from five years ago. The species is now visible across all the waters of Nanchang.

Jiangxi has secured it the top spot in enforcing no-catch and catch-and-release policies for three consecutive years since 2020. In the 2022 annual assessment of the enforcement of the Yangtze River's 10-year fishing ban newly released by the Ministry of Public Security， Jiangxi's public security sector was ranked at the forefront nationwide. This recognition highlights the pivotal contribution of the security sector in nurturing the "Jiangxi model"，aligning with China's overarching initiative to build a more picturesque nation.

（Translated by Chen Xiaoying， School of Foreign Languages， Beijing Forestry University）