中国国家公园统一管理体制研究

An Integrated Management Rights System for National Parks in China:The Institutional Design of the National Parks Law

自然保护地的体制构建与机制保障对自然保护地目标的实现起着决定性的作用。通过立法确定党和国家关于国家公园体制改革的重大政策,是《国家公园法》立法的重要任务。我国各类自然保护地和国家公园体制试点存在的根本性和共通性问题表明,在未将国家公园体制构建和机制创新的内容纳入法律调整的情况下,仅仅依靠现有法律措施或通过地方立法很难改变国家公园范围内既定的社会关系,难以达成构建以国家公园为主体的自然保护地体系建设的改革设想。在党中央国务院明确提出统一管理权的国家公园管理体制的背景下,《国家公园法》立法应当打破既往环境与资源保护法律很少涉及政府体制及其运行机制安排的立法禁区,顺应通过立法构建现代环境治理体系的呼应,对国家公园范围内全民所有自然资源资产所有权的行使方式、权力配置、财政措施以及统一和综合执法制度做出具体的设计和安排。

Establishing a system and guaranteeing a mechanism for protected areas are decisive to reach the goals of protected areas.A main mission with the enactment of the National Parks Law is to,through legislation,determines the major policies on the systemic reform of national parks by the Party and the country.Various fundamental and common issues which emerged from the pilot protected areas and national parks show that,without legally adjusting the establishment of a system and mechanism for national parks but solely relying on existing laws or local legislation,it would be difficult to change the entrenched social relations within national parks and to forge reform ideas about a protected areas system with national parks as main entities.While keeping in mind that the Central Committee of the Communist Party of China and the State Council clearly proposed a management system for national parks with integrated management rights,the enactment of the National Parks Law should break away from past prohibitions on legislative activities on the government system and its operating mechanism in the field of environmental and natural resources protection laws.Furthermore,in response to the demand for a modern environmental governance system via legislation,it should also conceive and arrange for the exercise,the allocation of power,the financial measures,and the integrated and comprehensive enforcement of natural resources ownership by the whole people in national parks.