國(guó)家公園：解決人為碎片化生態(tài)系統(tǒng)問(wèn)題

文/吳平

三江源國(guó)家公園的藏原羚（蘇楊攝）

編者按

“我們既要綠水青山，也要金山銀山。寧要綠水青山，不要金山銀山，而且綠水青山就是金山銀山。”習(xí)近平總書(shū)記一直十分重視生態(tài)環(huán)境保護(hù)，黨的十九大更是將“綠水青山就是金山銀山”寫(xiě)入報(bào)告，為中國(guó)特色社會(huì)主義新時(shí)代的生態(tài)文明建設(shè)發(fā)出了最強(qiáng)音。本刊特開(kāi)設(shè)“綠水青山就是金山銀山”欄目，探討新時(shí)代生態(tài)文明建設(shè)的新思路、新理念，歡迎各位投稿至zuona@safea.gov.cn。

在推進(jìn)生態(tài)文明建設(shè)的進(jìn)程中，建立國(guó)家公園體制是設(shè)定資源消耗上線(xiàn)，劃定生態(tài)保護(hù)紅線(xiàn)，嚴(yán)守環(huán)境質(zhì)量底線(xiàn)，構(gòu)建國(guó)土生態(tài)安全空間的重大舉措。通過(guò)建立國(guó)家公園對(duì)本國(guó)具有代表性的生態(tài)系統(tǒng)、自然資源及景觀、文化遺產(chǎn)等予以重點(diǎn)、有效保護(hù)，已成為國(guó)際社會(huì)的趨勢(shì)。黨的十八屆三中全會(huì)從國(guó)家治理體系和治理能力現(xiàn)代化的改革總目標(biāo)出發(fā)，提出“建立國(guó)土空間開(kāi)發(fā)保護(hù)制度，嚴(yán)格按照主體功能區(qū)定位推動(dòng)發(fā)展，建立國(guó)家公園體制”。

In the process of promoting ecological progress, establishing a national park system is a major measure to set the upper limits for resource consumption, draw a red line for ecological protection, strictly adheres to environmental quality bottom line and ensure national ecological security. The Third Plenary Session of the 18th CPC Central Committee stated that “we should unswervingly implement the functional zoning system,build a territory spatial development and protection system,establish a national park system and promote development in strict accordance with positioning of functional zones”.

什么是國(guó)家公園？

我國(guó)“國(guó)家公園”類(lèi)型多樣，自然保護(hù)區(qū)、風(fēng)景名勝區(qū)、世界文化自然遺產(chǎn)、國(guó)家森林公園、國(guó)家濕地公園、城市濕地公園、國(guó)家沙漠公園、國(guó)家礦山公園、國(guó)家地質(zhì)公園、國(guó)家重點(diǎn)公園及水利風(fēng)景區(qū)等十幾種不同名稱(chēng)的“公園”“保護(hù)區(qū)”重疊司空見(jiàn)慣，多塊牌子的背后呈現(xiàn)出管理體系的混亂和部門(mén)利益的博弈。在實(shí)踐中不免困惑于歸誰(shuí)管，怎么管。因此，建立國(guó)家公園體制，需要先正本清源。

事實(shí)上，“國(guó)家公園”（National Park）由來(lái)已久，已有140多年的歷史。1872年，世界上第一個(gè)國(guó)家公園——美國(guó)黃石國(guó)家公園正式創(chuàng)立。雖然各國(guó)國(guó)家公園定義并不統(tǒng)一，模式不盡相同，但國(guó)家公園的百年實(shí)踐也逐漸形成了共識(shí)：國(guó)家公園不同于以游憩為主要導(dǎo)向的一般意義上的公園，而是以保護(hù)為優(yōu)先考慮，兼顧公眾享有。國(guó)家公園具有明確的限定要素，并不能僅從名稱(chēng)判斷。結(jié)合國(guó)際自然與自然資源保護(hù)聯(lián)合會(huì)（IUCN）的《保護(hù)地管理應(yīng)用指南》，域外成熟的制度運(yùn)行和實(shí)踐經(jīng)驗(yàn)，以及我國(guó)現(xiàn)實(shí)國(guó)情，我國(guó)的“國(guó)家公園”應(yīng)當(dāng)包括四個(gè)要素：第一，資源要素。國(guó)家公園內(nèi)的生態(tài)系統(tǒng)、自然和文化景觀應(yīng)當(dāng)具有國(guó)家代表性，且面積要足夠大、生態(tài)質(zhì)量要足夠高，以使得其內(nèi)的生態(tài)進(jìn)程得以持續(xù)進(jìn)行。第二，功能要素。國(guó)家公園應(yīng)當(dāng)有一定區(qū)域?yàn)楣娞峁蕵?lè)、游憩、學(xué)習(xí)、教育的機(jī)會(huì)。第三，國(guó)家要素。中央在國(guó)家公園的管理、財(cái)政等方面應(yīng)當(dāng)承擔(dān)重要甚至主導(dǎo)作用。第四，程序要素。成為名正言順的國(guó)家公園需要符合相應(yīng)的程序，由管理部門(mén)根據(jù)相應(yīng)的標(biāo)準(zhǔn)進(jìn)行指定，并實(shí)施規(guī)劃管理。

2006年以來(lái)，云南、黑龍江、浙江等地都進(jìn)行過(guò)“國(guó)家公園”地方層面的試點(diǎn)。然而，由于發(fā)展旅游能夠帶來(lái)巨大的經(jīng)濟(jì)效益，并且社會(huì)公眾對(duì)于保護(hù)地所能帶來(lái)的教育、游憩的需求強(qiáng)烈，地方對(duì)于設(shè)立國(guó)家公園試點(diǎn)的積極響應(yīng)可能更看重國(guó)家公園的品牌效應(yīng)和經(jīng)濟(jì)效益。以探索國(guó)家公園試點(diǎn)為名，行資源開(kāi)發(fā)利用創(chuàng)收之實(shí)，對(duì)環(huán)境、生態(tài)的破壞不可避免，很難體現(xiàn)出國(guó)家公園的真正特性。

為了糾正亂象叢生的試點(diǎn)實(shí)踐，有序建立國(guó)家公園體制，2015年以來(lái)，中央進(jìn)行了統(tǒng)一部署：13個(gè)部委聯(lián)合出臺(tái)試點(diǎn)方案，由國(guó)家發(fā)改委牽頭成立工作協(xié)調(diào)機(jī)制，遴選9個(gè)地區(qū)為試點(diǎn)。2015年，青海三江源、浙江開(kāi)化及湖北神農(nóng)架的國(guó)家公園試點(diǎn)正式啟動(dòng)。作為我國(guó)第一個(gè)國(guó)家公園體制試點(diǎn)，三江源國(guó)家公園的建設(shè)著力解決“九龍治水”和監(jiān)管執(zhí)法碎片化等問(wèn)題，構(gòu)建歸屬清晰、權(quán)責(zé)明確、監(jiān)管有效的生態(tài)保護(hù)管理體制機(jī)制，為我國(guó)其他國(guó)家公園試點(diǎn)建設(shè)樹(shù)立了標(biāo)桿與基準(zhǔn)。

National Park: What is it?

China has many different types of “national parks” including natural reserves, scenic spots, world cultural heritage sites,national forest parks, national wetland parks, urban wetland parks, national desert parks, national mine parks, national geological parks, national key parks, water conservancy scenic areas and other parks with a dozen different names. The similar and overlapping names re fl ect the confusing management and the conflicting interests between different departments. It is really bewildering who are in charge of national parks and how they are managed. Therefore, we should clarify the de fi nition and get to the bottom of the issue.

In fact, the name of National Park has been around for over 140 years. The Yellow Stone National Park, USA, the first national park in the world, was officially established in 1872.Although there are different de fi nitions and models of national parks, a general consensus has been reached after over 100 years of development: The difference between national parks and ordinary tourism-oriented parks lies in that the former prioritize conservation in addition to public use. National parks have specific elements and cannot be judged by the names.China’s national parks contain the following four elements in line with Guidelines for Applying Protected Area Management Categories published by IUCN and China’s current situation:1. Resource elements. A national park should have typical ecological systems and cultural and natural landscapes. It should have a big area and high ecological quality so that ecological processes within it can be sustained. 2. Functional elements. A national park should reserve certain areas for public recreation, tourism, learning and education. 3. National elements. The central government should play an important and even leading role in managing and fi nancially supporting national parks. 4. Procedural elements. Establishing a national park should follow legitimate procedures, that is, competent departments should designate certain areas as national parks in line with certain procedures and implement planning and management.

Since 2006, some pilot programs on national parks have been carried out in Yunnan, Heilongjiang, Zhejiang and other provinces. However, developing tourism can bring signi fi cant economic bene fi ts and the general public has a strong demand for educational and recreational opportunities of protected areas. local governments may pay more attention to the brand effect and economic benefit the national parks can generate and thus respond actively to pilot programs. If they just want more revenues by utilizing natural resources under the pretext of establishing national parks, it is inevitable that environment and ecology will be damaged. Therefore, it will be dif fi cult to re fl ect the true bene fi ts of national parks.

In order to correct the chaotic pilot practices and build an orderly national park system, the central government carried out unified arrangement in 2015. Coordinated by National Development and Reform Commission (NDRC), 13 government ministries jointly issued a pilot scheme and selected nine pilot regions. Pilot work started in three national parks respectively in Sanjiangyuan (Three River Source Region) of Qinghai Province, Kaihua of Zhejiang Province and Shenlongjia of Hubei Province. As the fi rst pilot project, Sanjiangyuan National Park tries to,resolve the issue of fragmented regulation and law enforcement, build an ecological protection management system with clear ownership, well-defined power and responsibilities and effective regulation and set a benchmark for the construction of other national parks in China.

國(guó)家公園建設(shè)應(yīng)體現(xiàn)從“管理”到“治理”的轉(zhuǎn)變

建立國(guó)家公園體制，將在理念、體制及行動(dòng)三方面帶動(dòng)生態(tài)治理現(xiàn)代化，助力生態(tài)文明建設(shè)。

理念上，國(guó)家公園體制的成功建立將會(huì)極大地提升和增強(qiáng)國(guó)家認(rèn)同感和民族自豪感，凝聚全民生態(tài)保護(hù)的共識(shí)，匯集生態(tài)文明建設(shè)的合力。國(guó)家公園不僅是一種重要的保護(hù)地類(lèi)型，更代表一國(guó)最具代表性的自然美景和文化遺跡，通過(guò)讓人們?nèi)硇牡亟佑|美麗的自然景觀和瑰麗的文化遺跡，生態(tài)保護(hù)意識(shí)落地生根，環(huán)境保護(hù)理念日益增強(qiáng)，從而產(chǎn)生對(duì)自然的愛(ài)護(hù)之情和對(duì)國(guó)家文化的赤子之心，并將逐漸體會(huì)到保護(hù)國(guó)家公園功在當(dāng)代、利在千秋。這種直接通過(guò)自然和文化之美所匯集的生態(tài)保護(hù)意識(shí)能夠成為推動(dòng)生態(tài)治理現(xiàn)代化的強(qiáng)大精神力量。

體制上，完善保護(hù)地體系屬于生態(tài)治理的典型內(nèi)容。建立國(guó)家公園體制并非僅指設(shè)立國(guó)家公園這一類(lèi)保護(hù)地，而是在對(duì)我國(guó)碎片化、高度重疊的各類(lèi)保護(hù)地進(jìn)行整合的基礎(chǔ)上，充分考慮自然的整體性，用國(guó)家公園體制予以統(tǒng)領(lǐng)，解決人為碎片化生態(tài)系統(tǒng)的問(wèn)題。另外，國(guó)家公園體制的建立又能夠?yàn)榻鉀Q生態(tài)治理現(xiàn)代化的關(guān)鍵問(wèn)題提供深入研究的基礎(chǔ)。解決國(guó)家公園內(nèi)自然資源權(quán)屬問(wèn)題，能為深化自然資源資產(chǎn)產(chǎn)權(quán)改革，統(tǒng)一管理山水林田湖提供經(jīng)驗(yàn)。明晰國(guó)家公園內(nèi)保護(hù)及利用的界限，能夠?yàn)榭茖W(xué)設(shè)定資源消耗上線(xiàn)，劃定生態(tài)保護(hù)紅線(xiàn)，嚴(yán)守環(huán)境質(zhì)量底線(xiàn)，構(gòu)建國(guó)土生態(tài)安全空間提供解決思路。

行動(dòng)上，國(guó)家公園建設(shè)中多元主體的參與是生態(tài)領(lǐng)域由“管理”向“治理”轉(zhuǎn)變的典型。多國(guó)成熟的國(guó)家公園治理實(shí)踐表明，國(guó)家公園從規(guī)劃、建立到維護(hù)的整個(gè)動(dòng)態(tài)過(guò)程，都需要國(guó)家、企業(yè)及公眾多方力量的協(xié)同行動(dòng)。中央需要做好對(duì)國(guó)家公園體制的頂層設(shè)計(jì)，承擔(dān)主要及兜底的運(yùn)營(yíng)經(jīng)費(fèi)。地方則要落實(shí)配套制度，予以管理、維護(hù)等具體實(shí)踐層面的支持。企業(yè)和其他社會(huì)組織，可以通過(guò)特許經(jīng)營(yíng)、社會(huì)捐贈(zèng)、協(xié)助培訓(xùn)等為國(guó)家公園的發(fā)展提供資金和智力支持。而公眾尤其是周邊居民，不僅有機(jī)會(huì)成為國(guó)家公園的工作人員或志愿者，而且可以通過(guò)參觀國(guó)家公園、支付相應(yīng)的門(mén)票費(fèi)用，作出自己的經(jīng)濟(jì)貢獻(xiàn)。

Ecological governance: a symphony played by different stakeholders

The establishment of the national park system will promote ecological governance modernization and boost ecological progress in terms of awareness raising, institutional arrangement and action.

Regarding awareness raising, the success of the national park system can considerably enhance the sense of national identity and pride, build consensus on ecological protection and achieve synergy in promoting ecological progress. National parks are not only a type of important protected areas, but also represent the typical natural landscape and cultural heritage of a country.People can raise awareness of ecological protection and enhance the concept of environmental protection through appreciating the beautiful natural scenery and splendid cultural heritage so that they can love nature and the country more deeply and gradually understand that protecting national parks can bene fi t future generations. The enhanced awareness of ecological protection can become a powerful spiritual force in promoting ecological governance modernization.

Regarding institutional arrangement, On the one hand,improving the protected area system is the typical content of ecological governance. Establishing the national park system does not mean just setting up only one type of protected area like national parks. Rather, the national park system is used to resolve the issue of fragmented ecological by integrating different types of fragmented and highly overlapping protected areas by into one. On the other hand, the establishment of the national park system can enable us to do further research on the key issues of ecological governance modernization.Determining the property right of natural resources within the national parks can provide experience in deepening reform on property right of natural resource assets and unifying management of mountains, waters, forest, lakes and farmland. Clarifying the boundary between conservation and development within national parks can help us to set the upper limit for resource consumption in a scienti fi c way, draw a redline for ecological protection, strictly observe the bottom line for environmental quality and ensure national ecological security. Designing a comprehensive, scienti fi c, reasonable and well-regulated system of protected areas with national parks at the core which features clear division of responsibilities,rights and interests, stable investment and multi-stakeholder coordination will be instrumental in achieving ecological governance modernization.

Regarding action, involving different stakeholders in national park system is a typical example of transformation from ecological “management” to “governance”. Successful national park governance practices in different counties indicate that coordinated actions should be taken by State, enterprises and the public in the whole dynamic process of planning,establishing and maintaining national parks. The central government should conduct top level design of the national park system and cover the main operational expenses. The local governments should implement supporting mechanisms and provide support in management, maintenance and other specific issues. Enterprises and other social organization can provide financial and intellectual support for national parks through franchises, donations and educational and training activities. The public including local residents in particular not only have the opportunity to become staff or volunteers in national parks, but also can make economic contributions through visiting the parks and buying tickets.

應(yīng)制定專(zhuān)門(mén)的《國(guó)家公園法》

長(zhǎng)期以來(lái)，整合保護(hù)地體系難以推進(jìn)的主要原因在于保護(hù)地法律依據(jù)的部門(mén)化和碎片化。雖然迄今已出臺(tái)《自然保護(hù)區(qū)條例》《風(fēng)景名勝區(qū)管理?xiàng)l例》《森林公園管理辦法》《國(guó)家重點(diǎn)公園管理辦法》等多個(gè)法規(guī)、部門(mén)規(guī)章及規(guī)范性文件，但是其適用范圍受限于單個(gè)保護(hù)地類(lèi)型，法律效力較低，實(shí)踐中各行其是，缺乏統(tǒng)籌協(xié)調(diào)功能，難以實(shí)現(xiàn)建立國(guó)家公園體制的整體構(gòu)想。因此，應(yīng)制定專(zhuān)門(mén)的《國(guó)家公園法》，將國(guó)家公園體制的建立納入法治化的軌道。

《國(guó)家公園法》總體思路應(yīng)當(dāng)包括五方面：第一，《國(guó)家公園法》是為了什么？這就需要在立法目的中正面回答保護(hù)優(yōu)先于利用，避免出現(xiàn)含糊不清而使得保護(hù)優(yōu)先的立法宗旨難以凸顯。第二，國(guó)家公園是什么？法律定義需要在適當(dāng)借鑒IUCN概念的基礎(chǔ)上，全面考慮我國(guó)自然和人文資源的分布情況，突出面積、功能、國(guó)家及程序要素。第三，《國(guó)家公園法》怎么做？就基本原則而言，需要做到保護(hù)第一、保障公益、國(guó)家主導(dǎo)、科學(xué)指導(dǎo)。第四，《國(guó)家公園法》怎么用？本法的適用范圍應(yīng)當(dāng)包括國(guó)家公園的設(shè)立、規(guī)劃、保護(hù)、管理、利用、維護(hù)、監(jiān)督等活動(dòng)及行為。第五，誰(shuí)對(duì)國(guó)家公園負(fù)責(zé)？這涉及不同主體的權(quán)利與義務(wù)：有關(guān)機(jī)構(gòu)的職責(zé)應(yīng)貫穿整個(gè)過(guò)程，既涉及管理體制的安排，又涉及經(jīng)費(fèi)、監(jiān)督等方面；原住民、公眾等應(yīng)當(dāng)擁有對(duì)國(guó)家公園進(jìn)入、游憩、享受的權(quán)利，也應(yīng)承擔(dān)不因其利用而打擾到國(guó)家公園維持自然狀態(tài)的保護(hù)義務(wù)。

此外，《國(guó)家公園法》應(yīng)當(dāng)對(duì)國(guó)家公園的設(shè)立標(biāo)準(zhǔn)、資源權(quán)屬、規(guī)劃報(bào)告、管理體制、資金投入、經(jīng)營(yíng)方式、監(jiān)督措施、監(jiān)測(cè)評(píng)估機(jī)制等重要內(nèi)容的核心要義予以明確的規(guī)定，對(duì)于這些主要制度再通過(guò)詳細(xì)的法規(guī)、實(shí)施細(xì)則或者管理類(lèi)、技術(shù)類(lèi)的規(guī)范予以落實(shí)。充分考慮國(guó)家公園的生態(tài)整體性和國(guó)家代表性，明確國(guó)家公園的資源權(quán)屬，確保國(guó)家公園得到穩(wěn)定的資金投入，實(shí)現(xiàn)對(duì)國(guó)家公園集中、高效、統(tǒng)一的保護(hù)管理。（作者單位：國(guó)務(wù)院發(fā)展研究中心資源與環(huán)境政策研究所）

Establishing a national park system based on the rule of law

The main reason why it has been difficult to integrate the system of protected areas for many years is that the legal framework for the protection is department-based and fragmented. Although several regulations, departmental rules and normative documents such as Regulation on Natural Protected Areas, Regulation on Scenic Spot Management, Administrative Measures on Forest Parks, Management, Administrative Measures on National Key Parks, etc. have been issued so far, each of them only covers one single type of protective area with low legal forces. In practice, each department in charge acts in its own way and there is no coordination, so it is dif fi cult to establish an integrated national park system. Therefore, we should enact a speci fi c national park law and bring the establishment of the national park system into the track of the rule of law.

Law on National Parks should include fi ve aspects in general: 1.What is the purpose of the law? The law should clearly de fi ne the principle of conservation coming before utilization so as to avoid ambiguity. 2. What is a national park? Based on the IUCN concept, the legal definition should take into consideration the distribution, area and function of China’s natural and cultural resources and national and procedural factors. 3.What should be included in the law? The general principles should be conservation first, ensuring public benefits, state playing a leading role and scienti fi c guidance. 4. How is the law used? The applicable scope should include the establishment,planning, conservation, management, utilization, maintenance and monitoring of national parks and other activities. 5. Who is responsible for national parks? This involves the rights and obligations of different stakeholders. The responsibilities of relevant organizations should be clearly defined regarding institutional arrangement, funding, supervision and other aspects. Local residents and the general public should have the right to have access to national parks for tourism and recreation.They should also shoulder the obligations of maintaining the natural state of national parks.

In addition, the law should clearly stipulate such important contents on national parks as the establishment standard,resource ownership, planning and report, management mechanism, funding, supervision and monitoring and assessment mechanism, etc. These main mechanisms should be implemented through making detailed regulations,implementation rules or management or technical standards.The ecological integrity and national representation of national parks should be taken into consideration. The ownership of national park resources should be clari fi ed to ensure national parks get stable fi nancial input to achieve integrated, ef fi cient and uni fi ed conservation and management.