自然保护地非完全中央集权政府治理模式研究——以美国荒野风景河流体系为例

Natural Protected Area: National Wild and Scenic Rivers System in USA as a Case

自然保护地治理是生态文明建设的重要方面,政府治理是世界自然保护地治理的主要模式。美国荒野风景河流体系是世界上最早的河流保护地体系,其政府治理模式是河流保护地治理的代表。在提出保护地治理系统框架基础之上,采取深入访谈、比较等方法,对美国荒野风景河流体系政府治理模式进行深入研究。结果表明:美国荒野风景河流体系政府治理模式在法律保障、产权制度、治理主体3个方面具有明显的联邦主导特征,但又在资源权属、治理主体和资金支持等方面存在一定的分权特征,是一种非完全中央集权政府的治理模式,因河而设,因河而治;尊重权利,适度分权;格局大维持,模式小改变。这些探索是对以国家公园为代表的完全中央集权政府治理模式的创新。非完全中央集权政府"多部门治理"与中国保护地治理现有的"分部门治理"模式存在着巨大差异。借鉴美国荒野风景河流体系非完全中央集权政府治理模式,可以在选择治理类型、尊重产权归属、改变治理主体权责等方面为中国自然保护地建设提供借鉴。

Governance of natural protected area is one of the key points in ecological civilization building,and government-dominant governance is the main mode of managing natural protected area.National Wild and Scenic Rivers System(NWSRS)of the United States of America is the earliest river protected system in the world,and its governance mode is the representative of the river protection.On the basis of the framework of the protected area management system,using in-depth interview and comparison,we explored the governance mode of NWSRS.The results show:the governance mode of NWSRS has obvious centralization characteristics in three aspects of legal system,institutional governance and property rights,and also has decentralization characteristics in terms of resource ownership,governance subject and financial support.Its governance is a non-fully federal government governance mode.Those,established and managed by river,respecting rights and moderately decentralizing,maintaining large patterns and changing details,are the innovation of a fully centralized governance mode represented by National Parks System.China’s governance on protected areas adopts a'sub-sector governance'mode,which is quite different from the'multi-sector governance'mode of non-fully federal government governance mode.Drawing lessons from WSRS’s incomplete centralized governance mode,we can provide references for Chinese Natural Protected Land System in terms of selecting governance types,respecting rights,changing responsibilities and so on.