國家公園的適應性規(guī)劃與管理

國家公園作為中國自然保護地體系的主體類型，以生態(tài)系統(tǒng)的有效管理為主要建設目標，所保護的空間是中國自然生態(tài)系統(tǒng)最重要、自然景觀最獨特、自然遺產(chǎn)最精華、生物多樣性最豐富的部分。國家公園為建設生態(tài)文明和美麗中國提供了支撐保障。在此之前，組織試點、加強頂層設計、制定相關標準、成立第一批國家公園以及制定國家公園空間布局方案等系列工作，使得國家公園建設在總體上朝著統(tǒng)一、高效和規(guī)范的方向發(fā)展，同時這也標志著中國國家公園進入穩(wěn)步建設時期。

處在建設時期的國家公園，在管理制度方面至少面臨十大任務。第一，創(chuàng)建設立管理制度。為此需要提出國家公園創(chuàng)建設立期的主要任務與工作流程，為國家公園規(guī)范化發(fā)展提供明確的階段安排。第二，規(guī)劃設計制度。綜合提出國家公園規(guī)劃體系，細化和落實國家公園的發(fā)展目標。第三，生態(tài)系統(tǒng)管理制度。國家公園所在的生態(tài)系統(tǒng)屬于中國國土空間最重要的生態(tài)系統(tǒng)類型，通過對其關鍵的生態(tài)過程和生態(tài)數(shù)據(jù)進行長期監(jiān)測，從而實現(xiàn)國家公園所在生態(tài)系統(tǒng)的整體性和可持續(xù)性管理。第四，自然資源資產(chǎn)管理制度。建立明晰的自然資源產(chǎn)權制度、實現(xiàn)國家公園自然資源確權是自然保護地體系建設優(yōu)化的關鍵工作。第五，全民共享管理制度。全民公益性是國家公園建設管理的重要理念。借助國家公園內優(yōu)越的自然與文化資源，重點在自然教育、生態(tài)旅游、自然游憩幾個方面做好工作并制定規(guī)范，為公眾提供更多貼近自然、認識自然、享受自然的機會，是實現(xiàn)國家公園全民共享的重要條件。第六，特許經(jīng)營管理制度。特許經(jīng)營是國家公園生態(tài)系統(tǒng)保護市場化機制的一種制度設計。探討特許經(jīng)營制度，有助于提高國家公園自然資源資產(chǎn)的利用水平，助力國家公園生態(tài)產(chǎn)品價值的高效實現(xiàn)。第七，公眾參與管理制度。中國國家公園公眾參與機制的關鍵是公眾參與程序以及保障體系的建立，最終實現(xiàn)公眾參與機制在技術操作層面及立法層面規(guī)范化、制度化和常態(tài)化。第八，社區(qū)協(xié)調管理制度。建立國家公園與社區(qū)關系的協(xié)調機制是決定國家公園建設成效的重要因素。解決原住民矛盾的關鍵在于與之搭建伙伴關系，形成雙向溝通渠道，達成共同治理。第九，監(jiān)測評估管理制度。對國家公園生態(tài)系統(tǒng)及其文化資源的保護、修復、利用與管理活動和成效進行監(jiān)測和評價，以適時調整管理過程。第十，資金保障管理制度。資金投入保障制度的建立是現(xiàn)有國家公園等自然保護地發(fā)展的重要支撐。構建一套適合中國國情的國家公園資金投入保障制度，將有助于新型自然保護地體系的全面可持續(xù)發(fā)展。

在當前形勢下，實施適應性管理是實現(xiàn)國家公園所在區(qū)域生態(tài)系統(tǒng)可持續(xù)目標的最佳途徑。依托上述管理制度，建立可實現(xiàn)的適應性管理目標，并通過科學的管理、監(jiān)測和調控活動，滿足現(xiàn)有國家公園的生態(tài)系統(tǒng)容量和區(qū)域社會經(jīng)濟需求變化。本期專題圍繞國家公園的“荒野”“游憩”“社區(qū)”“空間管控”以及“規(guī)劃”等議題，從不同側面深入探討了國家公園的適應性規(guī)劃與管理方法，期待能為未來國家公園的建設發(fā)展提供多渠道的路徑選擇。

Adaptive Plan and Management of National Park

As the main type of China’s system of natural protected areas,national parks take effective management of ecosystems as the main goal of their construction, and the protect space is the most important section of China’s natural ecosystems, with the most unique natural landscapes, the best natural heritages, and the richest biodiversity.National parks provide support and guarantee for building up the ecological civilization and Beautiful China.Previously, through a series of efforts, such as organizing pilot projects, strengthening top-level designs, formulating relevant standards, establishing the first lot of national parks, and making spatial layout plans for national parks, the construction of national parks has generally developed in the direction of unity, efficiency and standardization, indicating that China’s national parks are moving into a period of steady construction.

In their construction period, national parks are facing at least ten major tasks in terms of management regimes.First, management rules for creation and establishment.For this purpose, it is necessary to specify the major tasks and workflows during the creation and establishment period of national parks, so as to provide a clear phasewise arrangement for the standardized development of national parks.Second, rules for planning the design, i.e., comprehensively putting forward the planning system of national parks, and refining and implementing their development goals.Third, management rules for ecosystems.The ecosystems where national parks are located are the most important ecosystem types in China’s territorial space.By long-term monitoring of the key ecological processes and data, it is possible to deliver on a holistic and sustainable management of such ecosystems.Fourth, management rules for assets of natural resources.A key task for constructing and optimizing the system of natural protected areas is to establish a clear regime for natural resource property rights and clarify the rights of natural resources in national parks.Fifth, management rules for sharing by the whole people.The public welfare for all the people is an important philosophy in the construction and management of national parks.By virtue of the superior natural and cultural resources in national parks, tasks can be delivered and regulations can be formed in such key aspects as nature education, eco-tourism, and nature recreation, so as to provide the public with more opportunities of getting close to nature, understand nature, and enjoy nature.This is an important condition for realizing the sharing of national parks by all the people.Sixth, management rules for franchise operation.Franchise operation is a kind of institutional design of the market-oriented mechanism for ecosystem protection of national parks.The system for franchise operation is conducive to boosting the utilization of natural resource assets in national parks, while helping with an efficient realization of the value of ecological products of national parks.Seventh, management rules for public participation.The key to establishing a mechanism for the public to participate in China’ national parks lies in the foundation of public participation procedures as well as the guarantee system, so as to ultimately realize a standardized, institutionalized and normalized public participation mechanism both at the technical operation level and the legislative level.Eighth, management rules for coordination with communities.A coordination mechanism for the relationship between national parks and communities is an important factor for the effectiveness of national parks’ construction.The key to resolving conflicts with indigenous people is to create a partnership with them,so as to form two-way communication channels and implement joint governance.Ninth, management rules for monitoring and evaluation.It is necessary to monitor and evaluate the activities and effectiveness of protecting, restoring, utilizing and managing national parks’ecosystems and cultural resources, in order to adjust the management process in a timely manner.Tenth, management rules for financial guarantee.A funding guarantee system is an important support for the development of the existing national parks and other nature reserves.A set of funding guarantee system for national parks that is suitable for China’s national conditions will facilitate the comprehensive and sustainable development of the new system of natural protected areas.

In the current situation, to implementing adaptive management is the best approach to realizing the goal of sustainability of the ecosystems where national parks are located.Underpinned by the management rules as stated above, it is possible to set up achievable adaptive management objectives; and with scientific management,monitoring and regulation activities, we can meet the changing demand in terms of the ecosystem capacity of the existing national parks as well as regional socio-economic conditions.The topic of this issue will be focused on such topics as “wilderness”, “recreation”,“community”, “spatial management and control” and “planning”of national parks, with an intention to explore the adaptive plan and management methodology of national parks from different aspects in an in-depth manner.It is hoped that we could provide multiplechannel path selections for the construction and development of national parks in the future.

Acquiring editor of the current issue: ZHANG Yujun

September 10, 2023