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

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。

Establishing the national park system is an important reform task of the 3 rd 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.