Abstract: The grassland system plays a crucial role in supporting multiple functions,and the balance of such functions is essential for its sustainability and the high-quality development of pastoral areas. This study aims to provide a comprehensive understanding of the multiple functions of the grassland,followed by an analysis of the property rights conditions and governance principles to ensure their coordinated development. Research indicated that state-owned grasslands possess significant advantages in coordinating such multiple functions. They not only facilitate public policy intervention,but also exhibit prominent conditions in terms of scale economy,management,and the application of advanced technologies. Recognizing the diverse utilization scenarios of the state-owned grassland,this study puts forward corresponding optimization paths based on the principle of coordinated development of multiple functions. Specifically,for the grassland that has been contracted to the village collective,it is recommended to encourage cooperative management among farmers while stabilizing the contracting relationship,so as to reduce the fragmentation of grassland use. For the grasslands determined to be used by state-owned enterprises,it is recommended to give a full play to their organizational and management advantages and innovate animal husbandry production methods and non-animal husbandry development paths. For the grasslands where usage rights are not yet clearly defined and located in ecologically fragile areas,it is recommended to strengthen the management and protection responsibilities of local authorities and include those grasslands into the scope of nature reserves. In general,it is suggested that governments at all levels should adhere to the value of coordinated development of multiple functions of grasslands,carefully implement the work of contracting state-owned grasslands to individual farmers,and explore the establishment of supporting policies such as paid use of state-owned grassland.

Key words: State-owned grassland, Multiple functions, Property right, High-quality development, Pastoral area

摘要： 协调发展草原的多重功能是优化草原资源配置的基石,是实现牧区高质量发展的重要保障。本研究辨析了草原多重功能的内涵、多重功能协调发展所需的产权条件和治理原则,并结合案例分析提出了优化我国国有草原治理的路径。研究表明国有草原在协调草原多重功能方面具有显著优势,既便于公共政策介入,又具有十分突出的规模、管理和技术应用等条件。研究建议各级政府应树立和坚持草原多重功能价值理念,谨慎推行国有草原"应包尽包"工作,完善政策配套。对于确定给村集体使用的草原,应在稳定承包关系的同时,鼓励农户流转或合作经营,减少草原使用碎片化;对于由国有企事业单位使用的草原,应充分发挥国有农牧场的组织管理优势,创新畜牧业生产方式和非牧业发展路径;对于使用权尚不明确,且位于生态脆弱区的草原,应强化地方林草主管部门的管护职责,并将其纳入草原自然保护地范畴。

关键词: 国有草原, 多重功能, 草地产权, 高质量发展, 牧区