法国大区公园经验对钱江源国家公园体制试点区跨界治理体系构建的启示
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摘要
建立国家公园的目的之一是保护生态系统的原真性和完整性。然而,生态系统完整性和原真性保护不仅面对交叉重叠、多头管理导致碎片化管理问题,还要面对行政区划进一步造成的碎片化和管理分割的现实。钱江源国家公园体制试点区地跨浙江、安徽和江西三省,存在国家公园跨界治理过程中的三大普遍问题:跨界协同治理空间边界划定、生态保育政策及执行不统一、毗邻社区居民生计对自然资源依赖与生态保护目标的矛盾。文章借鉴法国大区公园治理经验,依据《建立国家公园体制总体方案》精神,提出钱江源国家公园跨界治理中必须形成一个政府主导(公园管理机构为代表),企业、社区居民和第三方组织共同参与的多元主体协同治理组织框架,并针对上述三个问题,提出通过第三方组织参与方式实现跨越行政壁垒的统一保护、通过社区协议保护方式实现保护标准的统一、通过国家公园产品品牌增值体系实现保护与发展的可持续性。
The function of establishing national parks is to protect the authenticity and integrity of the ecosystem. However, ecosystem integrity and the authenticity face not only overlapping protection, but also the management division and fragmentation problems due to administrative division. Qianjiangyuan National Park pilot is a region spanning Zhejiang, Anhui, and Jiangxi provinces. There are three common problems in the process of cross-border management of Qianjiangyuan National Park: delineation of the collaborative governance spatial boundary, discrepancy of the policy of ecological conservation and its implementation,and contradiction between the living reliance on natural resources and the goal of ecological protection.Learning from the experience of French regional parks governance, this paper puts forward that the Qianjiangyuan National Park must form a government-led(represented by the park management agency), a multi-subject cooperative governance framework involving enterprises, community residents and non-governmental organizations. At last, in view of the above three problems, it is proposed to realize the unified protection across administrative barriers through the third-party participation, the unification of protection standards through the community agreement protection, and the sustainability of protection and development through the national park product brand value-added system.
The function of establishing national parks is to protect the authenticity and integrity of the ecosystem. However, ecosystem integrity and the authenticity face not only overlapping protection, but also the management division and fragmentation problems due to administrative division. Qianjiangyuan National Park pilot is a region spanning Zhejiang, Anhui, and Jiangxi provinces. There are three common problems in the process of cross-border management of Qianjiangyuan National Park: delineation of the collaborative governance spatial boundary, discrepancy of the policy of ecological conservation and its implementation,and contradiction between the living reliance on natural resources and the goal of ecological protection.Learning from the experience of French regional parks governance, this paper puts forward that the Qianjiangyuan National Park must form a government-led(represented by the park management agency), a multi-subject cooperative governance framework involving enterprises, community residents and non-governmental organizations. At last, in view of the above three problems, it is proposed to realize the unified protection across administrative barriers through the third-party participation, the unification of protection standards through the community agreement protection, and the sustainability of protection and development through the national park product brand value-added system.
引文
Chen XT,Jin XT,Su Y(2017)The initiative and experiences of the national park management system reform in France and its enlightenment to China.Environment Protection,45(19),56-63.(in Chinese)[陈叙图,金筱霆,苏杨(2017)法国国家公园体制改革的动因、经验及启示.环境保护,45(19),56-63.]
Daim MS,Bakri AF,Kamarudin H,Zakaria SA(2012)Being neighbor to a national park:Are we ready for community participation?Procedia-Social and Behavioral Sciences,36,211-220.
Dearden P,Bennett M,Johnston J(2015)Trends in global protected area governance,1992-2002.Environmental Management,36,89-100.
Gao Y,Deng Y,Zhang H,Wang JY,Liang B(2017)Community conflicts of the national park overseas:Performance,tracing origins and enlightenment.Tourism Tribune,32(1),112-120.(in Chinese with English abstract)[高燕,邓毅,张浩,王建英,梁滨(2017)境外国家公园社区管理冲突:表现、溯源及启示.旅游学刊,32(1),112-120.]
Huang BR,Wang Y,Su LY,Zhang CL,Cheng DW,Sun J,He SY(2018)Pilot programs for national park system in China:Progress,problems and recommendations.Bulletin of Chinese Academy of Sciences,33(1),76-84.(in Chinese with English abstract)[黄宝荣,王毅,苏利阳,张丛林,程多威,孙晶,何思源(2018)我国国家公园体制试点的进展、问题与对策建议.中国科学院院刊,33(1),76-84.]
Mathevet R,Thompson JD,Folke C,Chapin FS(2016)Protected areas and their surrounding territory:Socioecological systems in the context of ecological solidarity.Ecological Applications,26,5-16.
Nakakaawa C,Moll R,Vedeld P(2015)Collaborative resource management and rural livelihoods around protected areas:Acase study of Mount Elgon National Park,Uganda.Forest Policy and Economics,57,1-11.
Niedzia KK,Blicharska M,Mikusiński G,Jedrzejewska B(2014)Why is it difficult to enlarge a protected area?Ecosystem services perspective on the conflict around the extension of the Bia?owie?a National Park in Poland.Land Use Policy,38,314-329.
Shi LY,Li D,Chen L,Zhao Y(2012)Transboundary protected areas as a means to biodiversity conservation.Acta Ecologica Sinica,32,6892-6900.(in Chinese with English abstract)[石龙宇,李杜,陈雷,赵洋(2012)跨界自然保护区--实现生物多样性保护的新手段.生态学报,32,6892-6900.]
Su HQ,Su Y,Wang YF(2018)The reference of French national park system reform.China Economic Report,(1),68-70.(in Chinese)[苏红巧,苏杨,王宇飞(2018)法国国家公园体制改革镜鉴.中国经济报告,(1),68-70.]
Wu J,Hu L,Gao Z(2017)National parks:From protected area management to governance.Environment Protection,
19(45),30-33.(in Chinese)[吴健,胡蕾,高壮(2017)国家公园--从保护地“管理”走向“治理”.环境保护,19(45),30-33.]
Wu P(2018)National park:Solving the problem of man-made debris ecosystem.International Talent,(1),62-64.(in Chinese)[吴平(2018)国家公园:解决人为碎片化生态系统问题.国际人才交流,(1),62-64.]
Wu WG,Lou T,Zheng XL,Sheng NH,Gu L(2005)Analyzing the relevant stakeholders of nature reserve development and its conflicts managing:Take Tianmo Nature Reverse as the case.Problems of Forestry Economics,25(5),270-274.(in Chinese with English abstract)[吴伟光,楼涛,郑旭理,盛恩浩,顾蕾(2005)自然保护区相关利益者分析及其冲突管理--以天目山自然保护区为例.林业经济问题,25(5),270-274.]
Yang J,Zhao Q,Yang XZ(2007)The game theory analying between management of nature reserve and surrounding communities.On Economic Problems,(10),53-55.(in Chinese with English abstract)[杨佳,赵清,杨兴中(2007)自然保护区管理与周边社区农民经济活动的博弈分析.经济问题,(10),53-55.]
Zhang Y,Zhuang YB,Yang R(2018)Review on the management and planning of national park system in France.Chinese Landscape Architecture,34(7),36-40.(in Chinese with English abstract)[张引,庄优波,杨锐(2018)法国国家公园管理和规划评述.中国园林,34(7),36-40.]Zhuang YB(2009)Research and Reference on Management Beyond Park Boundaries of U.S.Chinese Society of Landscape Architecture.In:Proceedings of the 2009 Annual Meeting of the Chinese Society of Landscape Architecture.Chinese Society of Landscape Architecture.Chinese Society of Landscape Architecture,Beijing.[庄优波(2009)美国国家公园界外管理研究及借鉴.见:中国风景园林学会2009年会论文集.中国风景园林学会,北京.]
Daim MS,Bakri AF,Kamarudin H,Zakaria SA(2012)Being neighbor to a national park:Are we ready for community participation?Procedia-Social and Behavioral Sciences,36,211-220.
Dearden P,Bennett M,Johnston J(2015)Trends in global protected area governance,1992-2002.Environmental Management,36,89-100.
Gao Y,Deng Y,Zhang H,Wang JY,Liang B(2017)Community conflicts of the national park overseas:Performance,tracing origins and enlightenment.Tourism Tribune,32(1),112-120.(in Chinese with English abstract)[高燕,邓毅,张浩,王建英,梁滨(2017)境外国家公园社区管理冲突:表现、溯源及启示.旅游学刊,32(1),112-120.]
Huang BR,Wang Y,Su LY,Zhang CL,Cheng DW,Sun J,He SY(2018)Pilot programs for national park system in China:Progress,problems and recommendations.Bulletin of Chinese Academy of Sciences,33(1),76-84.(in Chinese with English abstract)[黄宝荣,王毅,苏利阳,张丛林,程多威,孙晶,何思源(2018)我国国家公园体制试点的进展、问题与对策建议.中国科学院院刊,33(1),76-84.]
Mathevet R,Thompson JD,Folke C,Chapin FS(2016)Protected areas and their surrounding territory:Socioecological systems in the context of ecological solidarity.Ecological Applications,26,5-16.
Nakakaawa C,Moll R,Vedeld P(2015)Collaborative resource management and rural livelihoods around protected areas:Acase study of Mount Elgon National Park,Uganda.Forest Policy and Economics,57,1-11.
Niedzia KK,Blicharska M,Mikusiński G,Jedrzejewska B(2014)Why is it difficult to enlarge a protected area?Ecosystem services perspective on the conflict around the extension of the Bia?owie?a National Park in Poland.Land Use Policy,38,314-329.
Shi LY,Li D,Chen L,Zhao Y(2012)Transboundary protected areas as a means to biodiversity conservation.Acta Ecologica Sinica,32,6892-6900.(in Chinese with English abstract)[石龙宇,李杜,陈雷,赵洋(2012)跨界自然保护区--实现生物多样性保护的新手段.生态学报,32,6892-6900.]
Su HQ,Su Y,Wang YF(2018)The reference of French national park system reform.China Economic Report,(1),68-70.(in Chinese)[苏红巧,苏杨,王宇飞(2018)法国国家公园体制改革镜鉴.中国经济报告,(1),68-70.]
Wu J,Hu L,Gao Z(2017)National parks:From protected area management to governance.Environment Protection,
19(45),30-33.(in Chinese)[吴健,胡蕾,高壮(2017)国家公园--从保护地“管理”走向“治理”.环境保护,19(45),30-33.]
Wu P(2018)National park:Solving the problem of man-made debris ecosystem.International Talent,(1),62-64.(in Chinese)[吴平(2018)国家公园:解决人为碎片化生态系统问题.国际人才交流,(1),62-64.]
Wu WG,Lou T,Zheng XL,Sheng NH,Gu L(2005)Analyzing the relevant stakeholders of nature reserve development and its conflicts managing:Take Tianmo Nature Reverse as the case.Problems of Forestry Economics,25(5),270-274.(in Chinese with English abstract)[吴伟光,楼涛,郑旭理,盛恩浩,顾蕾(2005)自然保护区相关利益者分析及其冲突管理--以天目山自然保护区为例.林业经济问题,25(5),270-274.]
Yang J,Zhao Q,Yang XZ(2007)The game theory analying between management of nature reserve and surrounding communities.On Economic Problems,(10),53-55.(in Chinese with English abstract)[杨佳,赵清,杨兴中(2007)自然保护区管理与周边社区农民经济活动的博弈分析.经济问题,(10),53-55.]
Zhang Y,Zhuang YB,Yang R(2018)Review on the management and planning of national park system in France.Chinese Landscape Architecture,34(7),36-40.(in Chinese with English abstract)[张引,庄优波,杨锐(2018)法国国家公园管理和规划评述.中国园林,34(7),36-40.]Zhuang YB(2009)Research and Reference on Management Beyond Park Boundaries of U.S.Chinese Society of Landscape Architecture.In:Proceedings of the 2009 Annual Meeting of the Chinese Society of Landscape Architecture.Chinese Society of Landscape Architecture.Chinese Society of Landscape Architecture,Beijing.[庄优波(2009)美国国家公园界外管理研究及借鉴.见:中国风景园林学会2009年会论文集.中国风景园林学会,北京.]