生态文明建设背景下中国自然保护地发展的理论思考与创新实践

Theoretical debates and innovative practices of the development of China's nature protected area under the background of ecological civilization construction

建立以国家公园为主体的自然保护地体系,从改革角度看是贯彻习近平生态文明思想的重大举措,从国土空间治理角度看是做实生态建设的核心载体和维护其在国家生态安全中的首要地位。为了更好地理解与诠释生态文明建设背景下中国自然保护地的发展规律及其背后的驱动因素,我们邀请了七位来自生态文明和国家公园相关领域的知名专家,就自然保护地的以下方面进行了探讨:生态文明建设、人地关系、人与自然的冲突和共生转换机制、自然保护地的治理体系和中国治理体系对全球生态文明建设的贡献、自然资源资产产权制度、自然保护地的日常管理与监督、自然保护地的生态补偿和特许经营等。主要结论有:(1)只有生态文明体制才能真正使各地地方政府处理好自然保护地的保护与发展关系,而国家公园是生态文明体制改革中整体进展最快、制度改革最系统的领域。(2)要实现“最严格的保护”,在关注自然保护地“地”的同时,强调在“因地制宜”“恋地主义原真性”等视角下考虑“人”(尤其本地居民)在生态系统中的功能和参与方式。(3)自然保护地人与自然冲突的制度成因主要源自不同层级政府之间的利益结构冲突。解决冲突、实现人与自然共生,需要优化治理体系尤其是调整各级政府的责权利制度,重构利益维度,形成利益共同体。(4)在自然保护地治理体系中,要处理好多元主体的各类关系,需要在统一的管理目标下对不同利益主体责权利进行统筹协调与高效配置,建构自然保护地共治格局与多元共治体系。(5)全球自然保护治理存在资本逻辑与生态逻辑、自然保护地与人居系统、自然保护目标与全球执行力之间的深层次矛盾。新时代中国特色社会主义的制度优势和几千年积淀形成的“人与天调”的文化传统能为全球生态文明建设贡献中国智慧。(6)针对自然保护地体系建设需求及其在国土空间规划中的定位,进一步优化自然资源资产产权制度,探索有利于处理保护与发展关系的国土空间用途管制制度。(7)国家机构改革前,自然保护地存在“九龙治水”的破碎化管理问题。机构改革后有专门部门分别对自然保护地进行日常综合管理和监督执法,实现了管理与监督的统一、规范与有序。(8)要持久做到生态保护第一,就必须普遍实现两山转化,尤其是在市场经济条件下实现两山转化。国家公园特许经营制度是一种市场化、多元化的生态补偿路径,也是绿色发展的一种有效方式,需要用多种方式积极进行政府特许经营和品牌特许经营的探索。

The establishment of the nature protected area system based on national parks is seen as the important implementation of Xi Jinping's Thought on ecological civilization from the perspective of reform.From the perspective of homeland space governance,it is the core carrier of ecological construction and the primary position of maintaining its primary position in national ecological security.In order to achieve harmonious coexistence between man and nature in the nature protected area,it is necessary to achieve"the strictest protection"and"lucid waters and lush mountains are invaluable assets",which is both ecological and civilized.In order to better understand and interpret the development of China's protected areas and the driving factors behind them in the context of ecological civilization construction,we invited seven well-known experts from ecological civilization and national park related fields to discuss the following aspects of the protected areas:ecological civilization construction,humanland relations,conflict and symbiotic transformation mechanism between man and nature,the governance system of the protected areas and the contribution of Chinese governance system to the construction of global ecological civilization,natural resource asset property rights system,daily management and supervision of the protected areas,ecological compensation and concession of the protected areas,and etc.The main conclusions are:(1)Only through establishing the ecological civilization system can local governments deal with the relationship between the protection and development of the protected areas,and the establishment of the national park system has made the fastest overall progress and is the most systematic part in the reform of the ecological civilization system.(2)To achieve the"strictest protection",the development of the protected areas is inseparable from the support of the concept of the human-land relations.It stresses on the importance of paying attention to the"land"of the nature protected area,as well as emphasize the significance of the functions and participation of people from the perspectives of"adapting measures to local conditions"and"authenticity of land lovers".(3)The institutional causes of human-nature conflict in the nature protected area mainly stem from the conflict of interests and structures between governments at different levels.(4)To resolve conflicts and achieve symbiosis between man and nature,it is necessary to optimize the governance system,especially adjust the responsibility and rights system of governments at all levels.Moreover,in order to achieve the goals of"ecological protection first"and"public welfare for all people",we should reconstruct the dimension of interests,and form a community of common interests.(5)It is necessary to coordinate and efficiently allocate the responsibilities and rights of different stakeholders under the unified management goals,and construct a co-governance pattern and pluralistic co-governance system of the nature protected area so as to handle various relationships of multiple subjects in the governance system of the nature protected area.(6)There are deep-seated contradictions between the logic of capital and ecology,between the protected areas and human settlements systems,between nature conservation goals and global execution.The institutional advantages of socialism with Chinese characteristics in the new era and the cultural tradition of"man and heaven"formed by thousands of years of accumulation can contribute Chinese wisdom to the construction of global ecological civilization.(7)In view of the construction needs of the protected areas system and its positioning in the spatial planning,it is necessary to optimize the property rights system of natural resource assets,and explore the control system of the territorial space that is conducive to handling the relationship between protection and development.Before the reform of the national institutions,there was a problem of fragmented management("Nine-Dragon Water Governing"in Chinese)in the protected areas.The daily comprehensive management and supervision and law enforcement of the protected areas have been carried out to realize the unification,standardization and orderliness of management and supervision after the institutional reform.(8)In order to achieve ecological protection goals,it is necessary to universally realize the transformation of"two mountain theory",especially under the market economy.The national concession system can be seen as a market-oriented and diversified ecological compensation path and an effective way of green development,which requires the exploration of governmental franchise and brand franchising in active and diverse means.