中国国家公园的边界、分区和土地利用管理——来自自然保护区和风景名胜区的启示

Boundary, zoning, and land use management of the China National Parks: Learning from Nature Reserves and Scenic Areas

作为生态文明制度改革的具体实现方式和前沿阵地,国家公园体制建设旨在对我国多样化的保护地体系进行重组管理,实现高效合理的国土空间规划、自然资本的保护和全民公益。研究对我国自然保护区和风景名胜区这两类法定保护地的边界和区划的理论基础和实践的技术手段的发展进行梳理,并对我国国家公园体制试点进展进行总结。在此基础上提出,中国国家公园在保护地个体的边界和内部分区上应以实现保护目标为原则,借鉴自然保护区功能分区的基本原则,根据管理目标细化功能分区,借鉴风景名胜区规划实践,注重景观价值,考虑社会经济条件特别是土地权属及土地开发利用可能和方式,进而考虑气候变化和区域长期发展目标等自然和社会经济动态,形成完整的边界和分区理论体系,从而满足全民公益,实现社区经济发展。在区划理论上,一个可行的切入点是考虑空间上生态系统服务功能的差异,根据实现保护目标的管理需求和满足社区生计发展的利用需求,在土地权属和其他限制条件上实现不同组合的生态系统服务功能的空间规划,利用保护地役权来分离土地所有权、使用权和收益权,限制特定土地利用方式,进行利益相关方资源利用管理。

Establishment of the China National Park system aims to re-organise the diversified management systems of protected areas to realize efficient and proper terrestrial land planning,natural capital conservation,and public welfare.This study reviews the development of theories and techniques of the nature reserves and scenic areas and summarizes progress of national park pilots,and proposed the general rules of boundary delineation and zoning of national parks.National park planning should aim to achieve conservation goals,learn from nature reserve zoning and itemize management objectives for sub-zoning,and learn from scenic area planning to take a landscapce value into consideration and balance socio-economic conditions,especially land tenure.It then should consider climate change and regional development goals in the long term to finalize the theoretical system.In the formation of the theory,realizing different ecosystem service bundles could be the target of spatial control.Under certain land tenure systems,ecological protection and community livelihood development could be balanced by implementing conservation easements to separate land ownership,use rights,and benefit rights to restrain community land use in certain areas with compensation.