国家公园分区管控制度析论

Analysis on Zoning Controlin National Park

对国家公园进行合理分区和差别化管控是我国国家公园体制改革的目标与要求。我国多个试点国家公园实施的分区管控制度呈现出功能分区依据阙如、功能分区类型多元、分区标准各异等弊端。国家公园分区管控有多种立场与标准,法治视阈内的国家公园分区管控制度建构需要综合考量国家公园的立法模式与立法价值。我国选择的自上而下的国家公园管理体制决定了我国国家公园立法应采取统一立法模式,拟制定的《国家公园法》应系统规定国家公园分区管控制度体系,针对特定国家公园的地方立法所规定的分区管控措施,应定位为《国家公园法》的执行细则。《国家公园法》应当以人的行为控制为出发点和主线规定二阶结构的分区管控制度:首先以人类行为控制程度进行管控分区,规定核心保护区与一般控制区及对应的行为控制制度;进而在此基础上以人类行为方式进行功能分区,划分为严格保护区、生态保育区、科教游憩区和传统利用区,并有针对性地规定行为管控制度。

Reasonable zoning and differentiated control are the objectives and requirements of China's institutional reform of national park.Zoning control implemented by many pilot national parks in China shows the status quo and disadvantages of lack of functional zoning basis,multiple types of functional zoning,and different standards of functional zoning.There are various standpoints and standards of national park zoning control.From the perspective of rule of law,to construct national park zoning control system,we need to comprehensively consider the legislative model and value of national parks.The top-down management system determines that a unified legislative model should be adoped in the national park legislation of China.Therefore,the proposed National Park Law should systematically stipulate the national park zoning control system,and the zoning control measures stipulated by specific national parks should be positioned as the enforcement rules of the National Park Law.The National Park Law should stipulate advisor control system of second-order structure with human behavior control as the starting point and the main line:the control zoning should be based on the degree of human behavior control,then,the core protected area,the general control area and corresponding behavior control systems should be specified;on this basis,the functional zoning should be based on human behavior,which is divided into strictly protected area,ecological conservation area,science and education recreation area and traditional use area,and formulate a targeted zoning control system.