黄河流域自然保护地管理体制机制的立法规制

On Nature Reserves and Their Management System and Mechanism in the Yellow River Basin

黄河流域现有名目繁杂的361处国家级"自然保护地".现行立法的冲突或虚置、管理体制不科学以及管理机制运转不畅等问题严重阻碍了黄河流域生态保护和高质量发展这一国家重大区域发展战略的实施.2019年发布的《关于建立以国家公园为主体的自然保护地体系的指导意见》以及国家"十四五"规划和2035年远景目标纲要要求对已有"自然保护地"整合归并优化为国家公园、自然保护区和自然公园三类自然保护地.推动黄河流域自然保护地治理能力和治理体系现代化,必须从立法规制上寻求综合性解决方案,理顺黄河流域自然保护地管理体制机制.一是基于生命共同体理念重构自然保护地立法,从而消除立法冲突或虚置;二是建立以黄河流域管理机构为协同管理机构的协调机制;三是运用良治理念和现代治理工具完善管理体制机制.

The purpose of this paper is, taking the existing quite complex and confused 361 national-level "nature reserves" in the Yellow River Basin as its research object, to discuss how to re-construct the Basin’s nature reserves system as well as management institution and mechanism to tackle the three key problems, i.e., i) the overlapping scope leads to institutional redundancy, ii) the interests drive causes nominal legislation, and iii) policies are made by various departments and the management is fragment and disordered. To consolidate the existing "nature reserves" into an integrated nature reserve system consisting of national parks, natural protected areas and nature parks, to promote governance capability and modernization of the governance system for the Basin’s nature reserves, by adopting comprehensive solutions, the following measures should be taken, i.e., i) implement the notion of a life community, and overall plan and establish a scientific and reasonable nature reserves system in the Basin;ii) establish a management institution which combines direct management the central government, joint management by the central and local government and management by local government, while making the Basin management agency as a major collaborative agency;iii) employ the notion of good governance and modern tools to improve the governance mechanism.