国家公园科学决策与咨询机制建设的问题与路径——基于治理的视角

Problems and suggestions of building scientific decision-making and advisory mechanism of national parks —Governance-based perspective

        魏钰(中国科学院科技战略咨询研究院 北京 100190)
        程多威(中国科学院科技战略咨询研究院 北京 100190)
        王毅*(中国科学院科技战略咨询研究院 北京 100190)

         国家公园治理;科学决策;决策咨询;组织形式;权责边界

        national park governance;scientific decision-making;decision-making advisory;organizational forms;boundaries of authority and responsibility

        国家公园是多要素、多功能和多维度的综合体，很难沿袭传统的行政管控模式，需要探索现代化治理体系建设。建立合理高效的科学决策与咨询机制是提升治理成效的重要桥梁。我国在国家公园科学决策与咨询方面取得了显著进展，但由于权责界定模糊、部门化管理路径依赖、决策与咨询之间信息上通下达不够通畅、决策咨询程序规范和制度约束不足等原因，国家公园决策机制与成效仍存在一些问题。文章借鉴了美国和法国在政府集权管理和多元共治等不同治理体系下的国家公园决策咨询机制运行经验，分析了我国确立国家公园决策咨询机构权责边界的关键要素。根据潜在生态环境影响程度、潜在社会影响程度和决策实施的现实约束，文章提出了国家公园法律法规和行政规章制定等26项决策内容需赋予科学团体深度支撑决策甚至“一票否决”的权利，而中央与地方权责边界确立等19项决策内容需启动多方论证机制。文章还就决策咨询的学科统筹、联动协调、制度规范等问题提出了对策建议。

        National parks are multi-factor, multi-functional and multi-dimensional complexes, which makes them difficult to follow the traditional administration and management modes, and need to explore the construction of a modernized governance system. An important step in enhancing the effectiveness of governance is to establish a reasonable, and efficient scientific decision-making and consultation mechanism. China has made remarkable progress in scientific decision-making and consultation in national parks. However, there are still some problems with the national parks’ decision-making process and effectiveness due to vague definition of authority and responsibility, dependence on departmentalized management paths, and inadequate upward and downward transmission of information between decision-making and consultation, etc. This study draws on the operational experience of decision-making advisory mechanisms of national parks in the United States and France under different systems of centralized governance and polycentric governance, and analyzes the key components of clarifying the boundaries of authority and responsibility of decisionmaking advisory bodies of national parks in China. According to the degree of potential ecological and environmental impact, the degree of potential social impact and the realistic constraints of decision implementation, this study proposes that 26 decision contents, such as the formulation of national park laws and regulations and administrative regulations, need to give scientific experts the right to support the decision making in depth or even a veto, while 19 decision contents, such as the establishment of the boundary between central and local authority and responsibility, need to initiate a multi-party demonstration mechanism. This study also proposes countermeasures for disciplinary coordination, linkage and coordination, and institutional regulation of decision-making consultation.