一 | AI摘要 福建开展专项规划编制，通过部门协同、统一底图，厘清耕林重叠地块，形成“四个空间”互不重叠的规划成果，有效化解长期存在的“耕林争地”矛盾，优化农用地布局。 Under construction since 2011, the GERD project is one of the largest public infrastructure projects in Ethiopia, and will be the biggest hydroelectric power plant on the African continent once finished next year.,The third phase of the filling of a massive reservoir, capable of holding up to 74 billion cubic meters of water, was completed this week, with two of the dam’s planned 16 turbines now operational. When construction is finished, the dam will be capable of generating some 6,000 megawatts of power – more than double the average output of a WER-1000 nuclear reactor.,AfricaWATCH Water Pour Over Spillway on Ethiopia’s GERD Hydroelectric Dam After Finishing Third FillingYesterday, 22:33 GMT,In a ceremony inaugurating the project on Friday, Ethiopian Prime Minister Abiy Ahmed stressed that the dam was Ethiopia’s “gift,” and that it was “Ethiopia’s responsibility to use it” together with the other two Nile Basin countries - Egypt and Sudan.,“PM @AbiyAhmedAli reiterated that Ethiopia is working to ensure the benefits of the lower basin countries, saying that our Abbay River [Ethiopia’s term for the Blue Nile, one of the two major tributaries of the Nile] takes what it deserves while passing on what others deserve,” the prime minister’s office tweeted following the ceremony.,PM @AbiyAhmedAli reiterated that Ethiopia is working to ensure the benefits of the lower basin countries, saying that our Abbay River takes what it deserves while passing on what others deserve. He also congratulated all Africans on this milestone. (2/2) pic.twitter.com/Be9WtrHczO— Office of the Prime Minister - Ethiopia (@PMEthiopia) August 12, 2022,Just Deserts,The question of which country “deserves” what has been the subject of considerable consternation and debate between the three nations, as has the dam’s potential environmental impact, with Cairo and Khartoum fearing the filling of the 145 meter tall, 1.8 km long dam could threaten the region with droughts and floods. Last month, Egyptian Foreign Minister Sameh Shoukry warned that Cairo would defend its interests using “all means available” at its disposal, and called on the United Nations Security Council to negotiate a legally binding agreement between Egypt, Ethiopia and Sudan on regulating the dam’s operation. Egyptian President Abdel-Fattah El-Sisi earlier called the GERD dispute a “red line” security issue.,Ethiopian Ambassador to Russia Alemayehu Tegenu dismissed these concerns, telling Sputnik last month that Egypt and Sudan were trying to “internationalize and politicize the dam to solve their internal affairs” and assuring that the dam “has no significant harm” for the downstream nations.,WorldEgypt, Sudan Politicising Renaissance Dam Construction, Ethiopian Diplomat Says27 July 2021, 08:23 GMT,Nile River: Giver of Life,Stretching some 6,695 km and covering over 3.3 million square km, the Nile is the longest river in the world, and has played a significant role in regional civilizational development going back to the Ancient Egyptians owing to the rich soil perfect for agriculture created by its annual flooding, and its use as a tool for regional river navigation. Ethiopia’s Blue Nile tributary accounts for a whopping 85 percent of the Nile’s total waters.,Egypt, which receives almost no rainfall, relies on the Nile for more than 90 percent of its freshwater, with eastern Sudan similarly dependent on the river for its economic wellbeing and water and food security.,Legacy of Colonial Meddling,Part of the difficulty of regulating the dispute over the Nile is the lack of a regional agreement regulating the waters’ flow. Addis Ababa is not a party to the 1959 bilateral treaty between Egypt and Sudan dividing the Nile’s waters.,A separate 1929 Nile Waters Treaty between Britain and its then-puppet state of Egypt, plus the territories of what are now Uganda, Kenya, Tanzania, and Sudan provided Cairo the right to veto infrastructure projects up the Nile if they threatened to impact the country’s interests. However, that treaty similarly didn’t apply to Ethiopia, which managed to survive as the only independent nation in Africa after the European imperialist scramble for the continent in the 19th century, and which was never consulted on the agreement’s terms.,Russia’s Position,As a strategic partner of both Ethiopia and Egypt, Russia has sought to assure the dam dispute’s peaceful and mutually amenable resolution, with Foreign Minister Sergei Lavrov indicating in 2021 that Moscow would be ready to provide technical assistance for any negotiations on the matter. Russia also supports the use of the African Union platform to resolve the crisis.,Also last year, Russian Ambassador to the UN Vassily Nebenzia called on the three countries to stick to the terms of the 2015 Declaration of Principles on the GERD, which urged consensus in reaching an agreement on guidelines for the dam’s filling and operation, and committing Ethiopia to avoid steps which could harm its downstream neighbors. “At the same time, we note legitimate concerns of Egypt and Sudan over the possible negative impact that unconstrained functioning of the dam may produce on the populations of those countries in drought prone years,” he said.,The 2015 agreement and efforts at the African Union and UN levels mean that a baseline for a breakthrough and compromise exists. However, amid regional and global concerns about food and water security, and the threats posed by increasingly prevalent climate disasters and extreme weather events, the GERD dispute comes during a period of heightened regional and global tensions.,In 2021, Africa and Middle East intelligence analysis group Pangea-Risk warned that an all-out water war between Ethiopia, Egypt, Sudan, or their proxies was becoming increasingly probable in the face of dwindling options for a mediated solution.。
二 | 东南网8月19日报道（福建日报记者 徐士媛 通讯员 颜志忠 郑与国）初秋时节，走进邵武市城郊镇山口村溪东地块，茂密竹林隔绝燥热，清风穿林而过，蝉鸣与鸟语交织回荡。“这块地靠近城区、水源充足，最适合耕种。以后每年种一季水稻，再种两季其他作物，每亩收益至少2000元！”山口村村委会副主任涂君算起了经济账。而不久前，这片地还是“说不清是按耕地管理还是按林地管理”的耕林重叠地块。 改变，始于我省耕地保护和国土绿化空间专项规划（以下简称“专项规划”）编制工作的启动。如今，山口村溪东地块已被划入耕地补充空间，涂君放心地规划起未来的耕作。
三 | 福建素有“八山一水一分田”之称，特殊地貌决定了耕地保护与生态保护的双重重要性，“耕林争地”成为长期困扰福建的难题。随着专项规划工作的推进，越来越多“地类管理不清”的地块有了归属。 耕林矛盾之困 名实不符 权责不清 驱车驶入邵武市水北镇龙斗村，上溪头机耕道两旁杂木高低错落，风一吹枝叶翻涌，蓬勃绿意扑面而来。这片杂林的另一侧是连片的平整耕地，同一地块仿佛被分割成“两个世界”。 “村民陆续迁出，这片地慢慢就抛荒了。”望着眼前植被丛生的土地，龙斗村村委会副主任姜彦华满是惋惜。
四 | 随着农村劳动力持续外流，耕地抛荒，土地实际用途与官方地类认定存在脱节。
五 | 邵武市自然资源局三级主任科员丁勇解释，对于耕地抛荒后自然长草长林的地块，自然资源部门仍按耕地属性认定。这种“名实不符”的错位现象，存在于我省部分山区乡镇。 “名实不符”直接带来管理困境，最突出的便是耕地流出图斑的机械复垦整改问题。 “耕地流出疑似问题图斑和保护目标任务下达后，不管地块位置多偏远、耕作条件多差，很多都要求限期完成复垦复耕。”丁勇说。2024年，邵武市某地曾投入四五十万元，对几处偏远荒芜的地块实施复垦，却引来村民嘲笑：“管这没人要的地干啥，没人种还是会荒。
六 | ” 比抛荒错位更棘手的，是部门数据割裂导致的耕林重叠难题。长期以来，自然资源、林业两部门独立开展资源调查，因调查标准不统一、数据台账不互通，形成了互不兼容的“两张图”，导致“一地两籍”“一地两用途”的争议地块出现。同一块地，自然资源部门认定为耕地，林业部门却划入林地范畴，权责边界模糊不清。 耕林争地，最终影响的是基层群众，邵武市城郊镇山口村的种植户此前便深受其扰。 “两个部门都认定是自己的地，这让我们怎么办？”涂君介绍，曾经村里一些种植户对闲置土地进行复垦复耕，却被告知地块属于林地，要求限期恢复原状，甚至面临处罚。“自然资源部门说可以耕作，怎么林业部门还来处罚？”村民满是困惑。
七 | 多级协同破局 宜耕则耕 宜林则林 今年初，自然资源部、国家林业和草原局部署开展省级耕地保护和国土绿化空间专项规划编制工作，为福建化解耕林矛盾提供了重要契机。 简单来说，专项规划编制就是要将“四个空间”（耕地空间、耕地补充空间、林草空间、林草补充空间）划分清楚。 专项规划编制启动后，省、市、县三级同步成立由自然资源、林业部门共同组成的工作专班。依据基础数据，省级工作专班先形成包含“四个空间”的初划成果，但这一底图还需经过县乡多次复核完善。 面对这项全新的工作，县乡基层干部最初有些手足无措。 “一开始没有经验，就怕对政策文件的理解与省里的实际要求有偏差。
八 | ”这是许多基层干部的担忧。
九 | 省自然资源厅相关处室专门建立工作微信群，随时答疑解惑。宜耕则耕、宜林则林的标准怎么把握，某个具体地块该不该划入耕地空间……基层干部的一个个疑问，在群里都得到了及时回应。 经过多级联动，专项规划编制的核心原则——“宜耕则耕、宜林则林”愈发清晰。
十 | 各地逐渐统一划定标准：地势平坦、毗邻现有耕地、具备灌溉条件、交通便利的地块，优先划定为耕地补充空间；坡度超过25°、位置偏远的，划入林草补充空间。 但并非所有的争议地块都能够轻易划分清楚，若是遇上“既能够做耕地，也能够做林地”的地块，又该何去何从？面对这一棘手问题，武平县率先打了个样。 在武平县岩前镇伏虎村，有一片约300亩的松树林，既可用于耕作，也可保留用作林地。
十一 | “武平森林覆盖率达79.22%，耕地资源十分珍贵，如果我们一直抓着林地指标不放，工作就推不动。”武平县林业局资源站负责人王盛华说，最终这片300亩的松树林被划入耕地补充空间。
十二 | 在福建“林多地少”的省情下，优先保障耕地成了多地心照不宣的做法。
十三 | 在“宜耕则耕、宜林则林”的大原则下，除了考虑地块的实际地理条件，村民的意见同样重要。 邵武市自然资源局干部苏旭告诉记者，在邵武市水北镇大乾村，有一块80亩左右的茶林，原定划入林地空间继续种茶。
十四 | 但随着茶叶种植效益下滑，茶农希望将其调整为耕地，改种收益更高的农作物。收集到诉求后，工作组实地核查，最终将这块地纳入耕地补充空间。 目前，邵武全市2万多亩耕林重叠地块已全部精准厘清，武平县1.98万亩耕林重叠面积也全部完成“身份”确认。 耕林地尽其用 总量稳定 质量提升 土地“身份”明确后，沉睡的资源被盘活，经济价值逐渐显现。 正午时分，烈日当空，漳浦县赤湖镇半石村的种植大户陈春南蹲在田垄间查看苗情。
十五 | “行情好的时候，一亩收益一两万元不是问题。”陈春南承包了40多亩田地，可自由轮种大葱、地瓜、胡萝卜等多种经济作物。 这片总面积300多亩的田地也曾深陷耕林重叠争议。漳浦县城乡规划中心负责人林丽娜介绍，因该地块确实适合耕作，专项规划编制完成后，这片地被划入耕地空间。 “我们早有意向耕作这块地，但就是碍于土地性质不明确，不敢轻易复垦，现在终于安心了。”陈春南说，村里还有五六户种植大户也在积极对接这块地的复耕事宜。
十六 | 据悉，漳州多地采取“边规划、边整治、边见效”的模式，尽快整出耕地，同步对接有意向的种植大户，尽早释放土地效益。 地块用途明确后，自然资源和林业两个部门的管辖边界同步厘清，土地治理效能显著提升。 “以前权属模糊的地块，最容易出问题。”武平县自然资源局副局长王淦举例，企业报批项目临时用地时，自然资源部门说是耕地，林业部门说是林地，企业需要两头跑，两边都要审批，此外土地使用结束后的复垦方向也不好确定。“通过林耕置换优化，双方所管辖的土地总量基本稳定，但管理边界全部厘清，没有损失，只有共赢。” 总量保持稳定，质量显著提升，耕地保护与生态保护双向优化。 截至目前，全省约31万片共计15万亩坡度大、零星破碎、难以持续耕作，以及与生态保护冲突、影响行洪安全的耕地，被剔除出耕地保护范围，耕地空间布局更集中、更稳定。
十七 | 剔除地块中，适宜林草种植的划入林草补充空间，生态区位重要的地块纳入林草保护空间。 与此同时，平原地区、与现有耕地相连、适宜耕作的现状林地，优先划入耕地补充空间，目前全省有93万亩林地被划入耕地补充空间。 经过近半年集中攻坚，全省已基本形成空间不重叠、用途不冲突的“四个空间”规划成果。待规划成果批复后，将纳入自然资源“一张图”平台，作为自然资源和林业部门实施耕地、林地、草地管控和监督管理的依据。
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