“中国之治”的制度探索:生态文明与国家公园政策的演进、实践和展望

Institutional exploration of the“governance of China”:Evolution,practice and prospects of ecological civilization and national park policy

生态文明与国家公园政策是新时代“中国之治”的国家治理制度体系的重要部分。基于“政策结构-政策工具-政策演进”三维分析框架,运用演化理论和质性分析工具,对21世纪以来中国生态文明与国家公园相关政策制度规进行梳理,分析了生态文明领域政策的演进阶段、特征与内容,结合地方实践情况,探讨新形势下政策制度的愿景目标和发展路径选择,结果表明:(1)21世纪以来生态文明与国家公园政策演化可分为政策探索阶段(2000—2006年)、政策示范阶段(2007—2012年)、政策扩展与提升阶段(2013—2017年)和政策持续优化阶段(2018年至今)4个阶段,演化高峰期为2016—2018年;(2)政策以强制性工具为主导,呈现高度国家意志和权威特征,政策的参与主体多元化不足,社会参与度一般,标准规范形式与纲要性政策形式共现次数最多,结构式强制工具是最常用的政策组合形式;(3)地方生态文明实践各具特色,“福建模式”“青海智慧”和“浙江路径”都是重要的生态文明试点经验;(4)中国生态文明政策制度建设在制度的顶层设计、地方实践、理念影响3个方面取得了阶段性的重大突破,建议从完善制度体系建设与领域细化等6个方向和法律、文化和经济等10个具体方面,进一步促进中国生态文明政策制度建设。

The policy system of ecological civilization and national parks is an important part of the national governance system in the new era of the“governance of China”.Based on the three-dimensional analysis framework of“policy structure-policy tools-policy evolution”,we use evolutionary theory and qualitative analysis tools to sort out the policies and regulations related to China’s ecological civilization and national parks,and analyze the evolution stages,characteristics and contents of the policies and regulations since the 21st century in the field of ecological civilization.This paper analyzes the stages,characteristics and contents of policies in the field of ecological civilization,and discusses the vision objectives and development paths of the policies and systems under the new situation in the context of local practices.The research results show that:(1)The evolution of policies regarding ecological civilization and national parks since the 21st century can be divided into four stages,including the policy exploration stage(2000-2006),the policy demonstration stage(2007-2012),the policy expansion and enhancement stage(2013-2017),and the policy continuous optimization stage(2018-present),with the peak stage of evolution from 2016 to 2018;(2)Institutional policies are dominated by coercive tools,presenting a high degree of national will and authority,with insufficient diversification of the participating subjects and a general degree of social participation,the standardized normative form and the programmatic policy form co-occur most frequently,and the structural coercive tools are the most commonly used form of policy combination;(3)Local ecological civilization practices are distinctive,with“Fujian Model”,“Qinghai Experiences”,and“Zhejiang Path”being important ecological civilization pilot experiences;(4)China’s ecological civilization policy and institutional construction has achieved significant breakthrough in the top-level design,local practice,and conceptual influence of the system,and it is possible to promote the construction of China’s ecological civilization policy and institutional construction in six directions,such as further improving the construction of the institutional system and the refinement of the field,and in 10 specific aspects,including law,culture and the economy.