中国国家公园体制改革:回顾与前瞻
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摘要
自2013年提出建立国家公园体制,我国国家公园体制改革已取得了重要进展,成为整个生态文明体制改革任务中进展最快、成果最显著的综合性改革。过去5年,通过国家公园体制改革试点,初步完成了国家公园的顶层设计、明确了管理体制、启动了相关立法程序,筑就了国家公园建设的基本框架。改革的主要经验可以总结为四个方面:一是高层引领与改革创新,二是试点先行和动态调整,三是问题导向和顶层设计,四是利益相关方参与和改善治理体系。然而,未来国家公园体制建设仍然任重道远,面临众多挑战和困难,包括国家公园建设区通常人口众多、土地权属复杂、利益相关者众多、缺乏多方参与机制、地方管理能力薄弱等。今后,应在总结国家公园体制改革经验的基础上,坚持正确的改革取向,进一步扩大开放和创新思维,坚持法治优先、系统推进、分类指导、分阶段实施的基本原则,采取顶层设计加试点先行的方式,实现依法办园、科学办园、民主办园、开放办园;加快推动国家公园和自然保护地立法,建立国家公园现代化治理体系,探索建立国家公园生态产品价值实现机制;最终使以国家公园为主体的自然保护地体系得到整体保护,人民利益得以最大化,真正实现人与自然和谐发展。
Since the concept of National Park in China was put forward in 2013, the institutional reform for building China's national park system has made important progress and become the fastest and the most iconic comprehensive reform in the entire reform of the ecological civilization system. In the past five years, China has completed a top-down design, clarified a management system, initiated relevant legislative procedures, and built the basic framework for national park system through pilot programs. There are four important experiences in the institutional reform. The first is the combination of high-level leadership and system innovation. The second is pilot first followed by dynamic adjustment. The third is the problem oriented and top-down design. The fourth is encouraging stakeholder participation to improve governance system. Though progress has been made, the reform still faces many challenges and difficulties, and has a long way to go. National park potential construction areas often have large populations, complex land ownership patterns, numerous stakeholders, lack of multi-participation mechanisms, and weak local management capabilities. In the future, based on the experiences of institutional reform, we should insist on the correct reform orientation, further expand openness and innovate thinking, and follow the basic principles of system promotion, classification guidance, and phased implementation. We should combine top-down design with pilot programs, to establish national park system legally, scientifically, democratically and openly, to accelerate national park legislation, to establish a modern governance system, and to explore value realization mechanism of ecological products produced in national parks. In this way, the natural protected areas system with national parks as the backbone will be protected as a whole, the interests of the people will be maximized, and the harmonious development between man and nature will be realized.
Since the concept of National Park in China was put forward in 2013, the institutional reform for building China's national park system has made important progress and become the fastest and the most iconic comprehensive reform in the entire reform of the ecological civilization system. In the past five years, China has completed a top-down design, clarified a management system, initiated relevant legislative procedures, and built the basic framework for national park system through pilot programs. There are four important experiences in the institutional reform. The first is the combination of high-level leadership and system innovation. The second is pilot first followed by dynamic adjustment. The third is the problem oriented and top-down design. The fourth is encouraging stakeholder participation to improve governance system. Though progress has been made, the reform still faces many challenges and difficulties, and has a long way to go. National park potential construction areas often have large populations, complex land ownership patterns, numerous stakeholders, lack of multi-participation mechanisms, and weak local management capabilities. In the future, based on the experiences of institutional reform, we should insist on the correct reform orientation, further expand openness and innovate thinking, and follow the basic principles of system promotion, classification guidance, and phased implementation. We should combine top-down design with pilot programs, to establish national park system legally, scientifically, democratically and openly, to accelerate national park legislation, to establish a modern governance system, and to explore value realization mechanism of ecological products produced in national parks. In this way, the natural protected areas system with national parks as the backbone will be protected as a whole, the interests of the people will be maximized, and the harmonious development between man and nature will be realized.
引文
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,33,76–85.(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,33,76–85.]
Peng FW(2018)Progress and outlook of national park system reform.China Institutional Reform and Management,(2),46–50.(in Chinese)[彭福伟(2018)国家公园体制改革的进展与展望.中国机构改革与管理,(2),46–50.]
Shen XX(2018)Supply-side structural reform research on governance models of Chinese national nature reserve.Wetland Science,16,24–29.(in Chinese with English abstract)[沈兴兴(2018)国家级自然保护区治理模式的供给侧结构性改革研究.湿地科学,16,24–29.]
Tian JL(2018)Ideas and explorations of Three-River-Source National Park.Forestry Construction,(5),189–196.(in Chinese)[田俊量(2018)三江源国家公园的理念和探索.林业建设,(5),189–196.]
Wang Y(2017)Practice and innovation for overarching institution design of China’s national park.Biodiversity Science,25,1037–1039.(in Chinese)[王毅(2017)中国国家公园顶层制度设计的实践与创新.生物多样性,25,1037–1039.]
Xu WG,Gao J,Xia X,Zhou DQ,Li ZL,Jiang KM(2016)Distribution of community residents in nature reserves and its impacts on the reserves in China.Journal of Ecology and Rural Environment,32,19–23.(in Chinese with English abstract)[徐网谷,高军,夏欣,周大庆,李中林,蒋明康(2016)中国自然保护区社区居民分布现状及其影响.生态与农村环境学报,32,19–23.]
Peng FW(2018)Progress and outlook of national park system reform.China Institutional Reform and Management,(2),46–50.(in Chinese)[彭福伟(2018)国家公园体制改革的进展与展望.中国机构改革与管理,(2),46–50.]
Shen XX(2018)Supply-side structural reform research on governance models of Chinese national nature reserve.Wetland Science,16,24–29.(in Chinese with English abstract)[沈兴兴(2018)国家级自然保护区治理模式的供给侧结构性改革研究.湿地科学,16,24–29.]
Tian JL(2018)Ideas and explorations of Three-River-Source National Park.Forestry Construction,(5),189–196.(in Chinese)[田俊量(2018)三江源国家公园的理念和探索.林业建设,(5),189–196.]
Wang Y(2017)Practice and innovation for overarching institution design of China’s national park.Biodiversity Science,25,1037–1039.(in Chinese)[王毅(2017)中国国家公园顶层制度设计的实践与创新.生物多样性,25,1037–1039.]
Xu WG,Gao J,Xia X,Zhou DQ,Li ZL,Jiang KM(2016)Distribution of community residents in nature reserves and its impacts on the reserves in China.Journal of Ecology and Rural Environment,32,19–23.(in Chinese with English abstract)[徐网谷,高军,夏欣,周大庆,李中林,蒋明康(2016)中国自然保护区社区居民分布现状及其影响.生态与农村环境学报,32,19–23.]