黄宝荣,王毅,苏利阳,张丛林,程多威,孙晶,何思源.我国国家公园体制试点的进展、问题与对策建议[J].中国科学院院刊,2018,33(1):76-85.
我国国家公园体制试点的进展、问题与对策建议
Pilot Programs for National Park System in China: Progress, Problems and Recommendations
我国国家公园体制试点的进展、问题与对策建议
Pilot Programs for National Park System in China: Progress, Problems and Recommendations
作者
黄宝荣
中国科学院科技战略咨询研究院 北京 100190
HUANG Baorong
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
王毅
中国科学院科技战略咨询研究院 北京 100190;中国科学院大学 公共政策与管理学院 北京 100049
WANG Yi
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China;School of Public Policy and Management, University of Chinese Academy of Sciences, Beijing 100049, China
苏利阳
中国科学院科技战略咨询研究院 北京 100190
SU Liyang
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
张丛林
中国科学院科技战略咨询研究院 北京 100190
ZHANG Conglin
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
程多威
中国科学院科技战略咨询研究院 北京 100190
CHENG Duowei
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
孙晶
中国农业科学院农业资源与农业区划研究所 北京 100081
SUN Jing
Institute of Agricultural Resources and Regional Planning, Chinese Academy of Agricultural Sciences, Beijing 100081, China
何思源
中国科学院地理科学与资源研究所 北京 100101
HE Siyuan
Institute of Geographic Sciences and Natural Resources Research, Chinese Academy of Sciences, Beijing 100101, China
中国科学院科技战略咨询研究院 北京 100190
HUANG Baorong
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
王毅
中国科学院科技战略咨询研究院 北京 100190;中国科学院大学 公共政策与管理学院 北京 100049
WANG Yi
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China;School of Public Policy and Management, University of Chinese Academy of Sciences, Beijing 100049, China
苏利阳
中国科学院科技战略咨询研究院 北京 100190
SU Liyang
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
张丛林
中国科学院科技战略咨询研究院 北京 100190
ZHANG Conglin
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
程多威
中国科学院科技战略咨询研究院 北京 100190
CHENG Duowei
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
孙晶
中国农业科学院农业资源与农业区划研究所 北京 100081
SUN Jing
Institute of Agricultural Resources and Regional Planning, Chinese Academy of Agricultural Sciences, Beijing 100081, China
何思源
中国科学院地理科学与资源研究所 北京 100101
HE Siyuan
Institute of Geographic Sciences and Natural Resources Research, Chinese Academy of Sciences, Beijing 100101, China
中文关键词
国家公园;体制改革;试点;评估;对策建议
英文关键词
national park;institutional reform;pilot programs;evaluation;recommendations
中文摘要
建立国家公园体制是党的十八届三中全会提出的重点改革任务，是我国生态文明制度建设的重要内容。党的十九大提出“建立以国家公园为主体的自然保护地体系”，进一步明确了国家公园体制在我国生态文明体制改革中的重要地位。为了建立符合我国国情的国家公园体制方案，2015年起，我国陆续在10个试点区开展国家公园体制试点工作。文章是在深入调研的基础上，对试点区取得的进展进行了初步评估。结果显示，我国国家公园体制试点在保护地整合、国家公园立法、日常管理制度、集体土地的用途管制和社区发展机制等方面进行了积极探索，积累了一批可复制、可推广的经验。但由于试点承担着综合配套改革重任，同时受现行法律法规、管理体制、人才和科技支撑能力等制约，各试点区在自然资源确权登记、跨行政区管理机制、多元化资金保障机制、特许经营和协议保护制度等方面体制试点进展滞后。未来国家公园体制构建，一方面要进一步推动试点方案中未完成各项改革任务的落实，破解各方面制约；另一方面，为了建立健全体制机制，需启动相关配套改革，包括推动自然保护地体系优化和制度创新，开展自然保护地和国家公园立法，构建国家公园全民共建共享、多元共治、品牌增值和科学决策机制与治理体系。
英文摘要
Establishing the national park system is an important reform task of the 3rd Plenary Session of the 18th Central Committee of the Communist Party of China (CPC), and also a major part of the reform for promoting ecological civilization of China. The 19th CPC National Congress pointed out that China will develop a natural reserve system mainly composed by national parks, which confirmed the importance of the national park system in the reform of China's ecological civilization. Since 2015, China has successively set up 10 pilot programs for establishing national parks. Based on in-depth investigations on 10 pilot programs, the study assessed the progress of the pilot programs and supported the overall plan on the development and management of national parks. The results show that pilot programs of national park system in China have made enormously positive progress in protected areas integration, national park legislation, collective land use regulatory, management system construction, and community development mechanism. However, restricted by current laws and regulations, management system, human resources, and scientific supporting capacity, the progress of pilot programs lags in terms of determining and registering ownership of natural resources, administrative mechanism of cross-administrative region, diversified funding mechanism, franchise, and conservation concession mechanism. We propose that the systematic pilot program should focus on resolving current conflicts, so as to enhance the implementation of various unfinished reform tasks. To establish a more robust national park system, we suggest that a comprehensive reform should further be promoted, such as promoting the optimization and system update of natural protection system, launching natural reserve and national park legislation, establishing the mechanisms of jointly building and sharing, multi-entity governance, natural capital appreciation, and scientific decision-making.
DOI10.16418/j.issn.1000-3045.2018.01.009
作者简介
黄宝荣 中科院科技战略咨询研究院副研究员。主要从事生态系统评估与管理、人-环境系统关系、以及国家公园体制改革和运营管理评估等研究。主持国家自然科学基金、环保部重大专项、中科院战略性先导科技专项、中科院STS计划重点项目、国家高端智库试点重大项目等重大决策咨询课题10余项;发表论文50余篇,参编专著5部;参与多项中央政府和国家部委生态保护、环境管理方面的文件、政策建议的研究和起草;获部级奖2项。E-mail:huangbaorong@casipm.ac.cn
HUANG Baorong Associate Professor at the Institutes of Science and Development,Chinese Academy of Sciences (CAS).His research interests include ecosystem assessment and management,human-environment relationship,national park system reform and assessment.He has presided over more than 10 topics from major decision consulting projects,sponsored by the National Natural Science Foundation of China,the Major Special Project of Ministry of Environmental Protection,the Strategic Priority Research Program of CAS,the Science and Technology Service Network Initiative of CAS,the Major Project of China Top Think Tanks Pilot,and so on,and has published nearly 50 papers and 5 monographs.His research has contributed toward many of China's current policies and institutional arrangements for ecological protection and environmental management.He also received 2 ministerial level awards.E-mail:huangbaorong@casipm.ac.cn
王毅 第十二届全国人大常委会委员,中科院科技战略咨询研究院副院长兼可持续发展战略所所长,中国科学院大学公管学院可持续发展系主任、岗位教授,年度中国可持续发展报告组长、首席科学家。主要从事生态文明建设、资源环境政策、能源与低碳转型发展、流域综合管理等领域的战略研究与政策系统分析。曾主持和参与过包括国家科技重大专项、国家社会科学基金重大项目、中科院战略性先导科技专项、国家高端智库试点重大项目以及各部级委托的重大项目在内的数十项科研课题。参与过许多中央和地方政府部门及有关机构的重大法律、规划、文件、政策建议的研究、起草和评估工作;曾获得部级科技进步奖一、二等奖和中国青年科技奖,国务院政府特殊津贴获得者。E-mail:wangyi@casipm.ac.cn
WANG Yi Member of Standing Committee of the 12th National People's Congress of China,and vice president of the Institutes of Science and Development,Chinese Academy of Sciences (CAS).He is also a professor and dean at the Department of Sustainable Development of School of Public Policy and Management,University of Chinese Academy of Sciences,team leader and chief scientist of the Annual China Sustainable Development Report.His research interests include public policy and strategic study related to sustainable development,especially in the fields of green development strategy,energy and climate change policy,integrated river basin management,and comprehensive planning for resource,environment and development.His research has contributed toward many of China's current policies and institutional arrangements for ecological civilization,environmental protection,and green and low carbon development.His works have been won several ministerial-level awards,winner of special government allowance,and the 4th Chinese Youth Science and Technology Award.E-mail:wangyi@casipm.ac.cn
HUANG Baorong Associate Professor at the Institutes of Science and Development,Chinese Academy of Sciences (CAS).His research interests include ecosystem assessment and management,human-environment relationship,national park system reform and assessment.He has presided over more than 10 topics from major decision consulting projects,sponsored by the National Natural Science Foundation of China,the Major Special Project of Ministry of Environmental Protection,the Strategic Priority Research Program of CAS,the Science and Technology Service Network Initiative of CAS,the Major Project of China Top Think Tanks Pilot,and so on,and has published nearly 50 papers and 5 monographs.His research has contributed toward many of China's current policies and institutional arrangements for ecological protection and environmental management.He also received 2 ministerial level awards.E-mail:huangbaorong@casipm.ac.cn
王毅 第十二届全国人大常委会委员,中科院科技战略咨询研究院副院长兼可持续发展战略所所长,中国科学院大学公管学院可持续发展系主任、岗位教授,年度中国可持续发展报告组长、首席科学家。主要从事生态文明建设、资源环境政策、能源与低碳转型发展、流域综合管理等领域的战略研究与政策系统分析。曾主持和参与过包括国家科技重大专项、国家社会科学基金重大项目、中科院战略性先导科技专项、国家高端智库试点重大项目以及各部级委托的重大项目在内的数十项科研课题。参与过许多中央和地方政府部门及有关机构的重大法律、规划、文件、政策建议的研究、起草和评估工作;曾获得部级科技进步奖一、二等奖和中国青年科技奖,国务院政府特殊津贴获得者。E-mail:wangyi@casipm.ac.cn
WANG Yi Member of Standing Committee of the 12th National People's Congress of China,and vice president of the Institutes of Science and Development,Chinese Academy of Sciences (CAS).He is also a professor and dean at the Department of Sustainable Development of School of Public Policy and Management,University of Chinese Academy of Sciences,team leader and chief scientist of the Annual China Sustainable Development Report.His research interests include public policy and strategic study related to sustainable development,especially in the fields of green development strategy,energy and climate change policy,integrated river basin management,and comprehensive planning for resource,environment and development.His research has contributed toward many of China's current policies and institutional arrangements for ecological civilization,environmental protection,and green and low carbon development.His works have been won several ministerial-level awards,winner of special government allowance,and the 4th Chinese Youth Science and Technology Award.E-mail:wangyi@casipm.ac.cn
