我国国家公园管理体系优化路径:以中央层面为例

Identifying the management system for national parks in China

我国已正式设立第一批国家公园,并正在建设全世界最大的国家公园体系,但如何实现国家公园的统一、规范、高效管理是一项重要挑战。为高质量建设国家公园,进一步完善管理体系,本文通过深入剖析我国国家公园现有管理模式存在的困难和问题,比较分析了美国、加拿大、澳大利亚和巴西等面积大国的国家公园管理体系。研究发现,我国国家公园中央层面管理体系尚不健全,当前依托森林资源监督专员办事处(简称专员办)建立单个国家公园管理机构、赋予其派驻监督职能存在弊端,难以充分发挥作用,同时存在专员办设置方式亟待优化、跨省级行政边界的国家公园管理难题需要破解等问题。国土面积较大的国家均在中央层面建立国家公园管理局-区域办公室(区域管理处)两级管理体系,推动管理力量深入基层一线。结合我国实际,提出落实派驻监督职能、推行区域管理、明确垂直管理体系各方职责的管理体系优化路径,建议从中央层面完善顶层设计,尽快构建国家公园管理局-片区局管理体系,整合国家林业和草原局现有15个森林资源监督派出机构,组建6-7个国家公园片区局,将资源监督职能转交剩余8-9个专员办,明确各管理主体职责,为我国国家公园管理提供参考依据。

Background&Aim:China has officially established the first batch of national parks and is currently building the world’s largest national park system.Achieving unified,standardized and efficient management is an important challenge,and to address this need,this paper analyzes how to build national parks with high quality and optimize governance systems.Review Results:We analyzed the difficulties and problems in the current management model of national parks in China through document analysis and compares the management systems of national parks in the United States,Canada,Australia and Brazil.We found that the management of national parks in China at the central level contains some gaps that may compromise high quality management of system.Currently,the forest resource supervision office(FRSO)is responsible for establishing the management organization of each national park and its post-supervision functions;however,this has drawbacks and the FRSO has difficulty fulfilling its role.In addition,there are problems such as the need to optimize the establishment of the FRSO and in addition,it is at times unclear how to solve management problems of cross-provincial boundary national parks.Some countries with large land areas have established a two-level management system at the central level,for example,the National Park Administration and the regional offices(regional management branch),to promote management on the ground.Talking into account the actual situation of China,the management system of national park should incorporate an optimization plan for implementing the park supervision functions,promote regional management,and define the responsibilities of all parties in the vertical management hierarchy.Suggestions&Perspectives:Based on the review of the China’s national park system as well as other international system,management could be improved by modifying the top-level design from the central level,building the national park administration district bureau management system as soon as possible,integrating the existing 15 FRSOs of the National Forestry and Grassland Administration,establishing 6‒7 national park regional bureaus,transferring the resource supervision function to the remaining 8‒9 FRSOs,and clarifying the responsibilities for the management of national parks in China.