我国以国家公园为主体的自然保护地体系建设进展与展望

Progress and Prospects of the Construction of Protected Area System with National Parks as the Main Body in China

自2013年党的十八届三中全会首次提出“建立国家公园体制”至今,中国已进入全面推进以国家公园为主体的自然保护地体系建设的新阶段。自然保护地的有效保护和管理是生物多样性保护战略最为基础的措施,是实现《昆明-蒙特利尔全球生物多样性框架》“3030”目标的核心任务之一。为此,该研究从我国国家公园开展试点探索(2013-2016年)、明确发展方向(2017-2020年)、加快建设(2021年至今)三个时间段,系统梳理了自国家公园体制改革启动以来,近10年来我国以国家公园为主体的自然保护地体系建设历程。可以看出,中国自然保护地体系建设探索形成了一系列创新举措与经验,主要包括:通过全域空间规划实现政策主流化;中央和地方财政投入持续增加,并探索了多元化资金渠道;通过整合优化解决自然保护地交叉重叠、多头管理的问题;以生物多样性保护为核心目标,兼顾生态系统服务、应对气候变化以及可持续发展等多重效益。围绕“3030”目标在自然保护地方面重点关注的面积比例、代表性、有效性、可持续性四个方面,整理分析了中国自然保护地体系建设的进展与不足。在此基础上,进一步提出以下建议,以期为我国及其他各国在推进实施“3030”目标方面提供借鉴和参考:①统筹落实自然保护地、生态保护红线与其他有效区域保护措施(OECMs)的系统性保护,特别是海洋保护方面;②提升自然保护地对于重要物种及其栖息地等重点区域的代表性和连通性;③完善各级各类自然保护地保护成效评估技术体系,形成常态化评估机制;④强化自然保护地可持续性评估指标与方法研究,兼顾自然保护地在应对各项社会挑战方面的多重效益;⑤探索多元化资金保障机制,开展试点实践和成本效益分析。

Since the‘establishment of a national park system’was first proposed at the Third Plenary Session of the 18th Central Committee of the Communist Party of China in 2013,China has entered a new phase of comprehensively promoting to establish a system for protected areas with national parks as the mainstay.The effective conservation and management of PAs is a fundamental component of biodiversity conservation strategy and a key task in achieving the‘3030’target outlined in the Kunming-Montreal Global Biodiversity Framework.This study systematically reviews the development of China's PA system centered on national parks over the past decade since the reform of the national park system was launched,dividing the process into three time periods:pilot exploration in national parks(2013-2016),clarification of development direction(2017-2020),and accelerated construction(after 2021).China's efforts to build its PA system have led to a series of innovative measures and experiences,including:achieving policy mainstreaming through comprehensive spatial planning,exploring diverse funding channels with increasing central and local financial input,and addressing overlapping and fragmented management issues through the integration and optimization of PAs.These efforts aim to achieve multiple benefits,such as biodiversity conservation,enhanced ecosystem services,climate change mitigation,and sustainable development.The study also analyzes progress and gaps in relation to the‘3030’target,focusing on four key aspects:area proportion,representativeness,effectiveness,and sustainability.Lastly,it offers the following recommendations for China and other countries to promote implementation and progress towards the‘3030’target:(1)systematic conservation efforts across PAs,ecological protection red lines,and other effective area-based conservation measures(OECMs),with particular focus on marine protection;(2)enhancing representation and connectivity of PAs for important species and habitats;(3)improving technical assessment systems for conservation effectiveness across all PA levels and types,and establishing regular assessment mechanisms;(4)strengthening research on sustainability indicators to account for the multiple benefits of PAs in addressing various social challenges;and(5)exploring diversified funding mechanisms,conducting pilot practices and costbenefit analysis.