国家公园：解决人为碎片化生态系统问题

文/吴平

三江源国家公园的藏原羚（苏杨摄）

编者按

“我们既要绿水青山，也要金山银山。宁要绿水青山，不要金山银山，而且绿水青山就是金山银山。”***总书记一直十分重视生态环境保护，党的十九大更是将“绿水青山就是金山银山”写入报告，为中国特色社会主义新时代的生态文明建设发出了最强音。本刊特开设“绿水青山就是金山银山”栏目，探讨新时代生态文明建设的新思路、新理念，欢迎各位投稿至zuona@safea.gov.cn。

在推进生态文明建设的进程中，建立国家公园体制是设定资源消耗上线，划定生态保护红线，严守环境质量底线，构建国土生态安全空间的重大举措。通过建立国家公园对本国具有代表性的生态系统、自然资源及景观、文化遗产等予以重点、有效保护，已成为国际社会的趋势。党的十八届三中全会从国家治理体系和治理能力现代化的改革总目标出发，提出“建立国土空间开发保护制度，严格按照主体功能区定位推动发展，建立国家公园体制”。

In the process of promoting ecological progress, establishing a national park system is a major measure to set the upper limits for resource consumption, draw a red line for ecological protection, strictly adheres to environmental quality bottom line and ensure national ecological security. The Third Plenary Session of the 18th CPC Central Committee stated that “we should unswervingly implement the functional zoning system,build a territory spatial development and protection system,establish a national park system and promote development in strict accordance with positioning of functional zones”.

什么是国家公园？

我国“国家公园”类型多样，自然保护区、风景名胜区、世界文化自然遗产、国家森林公园、国家湿地公园、城市湿地公园、国家沙漠公园、国家矿山公园、国家地质公园、国家重点公园及水利风景区等十几种不同名称的“公园”“保护区”重叠司空见惯，多块牌子的背后呈现出管理体系的混乱和部门利益的博弈。在实践中不免困惑于归谁管，怎么管。因此，建立国家公园体制，需要先正本清源。

事实上，“国家公园”（National Park）由来已久，已有140多年的历史。1872年，世界上第一个国家公园——美国黄石国家公园正式创立。虽然各国国家公园定义并不统一，模式不尽相同，但国家公园的百年实践也逐渐形成了共识：国家公园不同于以游憩为主要导向的一般意义上的公园，而是以保护为优先考虑，兼顾公众享有。国家公园具有明确的限定要素，并不能仅从名称判断。结合国际自然与自然资源保护联合会（IUCN）的《保护地管理应用指南》，域外成熟的制度运行和实践经验，以及我国现实国情，我国的“国家公园”应当包括四个要素：第一，资源要素。国家公园内的生态系统、自然和文化景观应当具有国家代表性，且面积要足够大、生态质量要足够高，以使得其内的生态进程得以持续进行。第二，功能要素。国家公园应当有一定区域为公众提供娱乐、游憩、学习、教育的机会。第三，国家要素。中央在国家公园的管理、财政等方面应当承担重要甚至主导作用。第四，程序要素。成为名正言顺的国家公园需要符合相应的程序，由管理部门根据相应的标准进行指定，并实施规划管理。

2006年以来，云南、黑龙江、浙江等地都进行过“国家公园”地方层面的试点。然而，由于发展旅游能够带来巨大的经济效益，并且社会公众对于保护地所能带来的教育、游憩的需求强烈，地方对于设立国家公园试点的积极响应可能更看重国家公园的品牌效应和经济效益。以探索国家公园试点为名，行资源开发利用创收之实，对环境、生态的破坏不可避免，很难体现出国家公园的真正特性。

为了纠正乱象丛生的试点实践，有序建立国家公园体制，2015年以来，中央进行了统一部署：13个部委联合出台试点方案，由国家发改委牵头成立工作协调机制，遴选9个地区为试点。2015年，青海三江源、浙江开化及湖北神农架的国家公园试点正式启动。作为我国第一个国家公园体制试点，三江源国家公园的建设着力解决“九龙治水”和监管执法碎片化等问题，构建归属清晰、权责明确、监管有效的生态保护管理体制机制，为我国其他国家公园试点建设树立了标杆与基准。

National Park: What is it?

China has many different types of “national parks” including natural reserves, scenic spots, world cultural heritage sites,national forest parks, national wetland parks, urban wetland parks, national desert parks, national mine parks, national geological parks, national key parks, water conservancy scenic areas and other parks with a dozen different names. The similar and overlapping names re fl ect the confusing management and the conflicting interests between different departments. It is really bewildering who are in charge of national parks and how they are managed. Therefore, we should clarify the de fi nition and get to the bottom of the issue.

In fact, the name of National Park has been around for over 140 years. The Yellow Stone National Park, USA, the first national park in the world, was officially established in 1872.Although there are different de fi nitions and models of national parks, a general consensus has been reached after over 100 years of development: The difference between national parks and ordinary tourism-oriented parks lies in that the former prioritize conservation in addition to public use. National parks have specific elements and cannot be judged by the names.China’s national parks contain the following four elements in line with Guidelines for Applying Protected Area Management Categories published by IUCN and China’s current situation:1. Resource elements. A national park should have typical ecological systems and cultural and natural landscapes. It should have a big area and high ecological quality so that ecological processes within it can be sustained. 2. Functional elements. A national park should reserve certain areas for public recreation, tourism, learning and education. 3. National elements. The central government should play an important and even leading role in managing and fi nancially supporting national parks. 4. Procedural elements. Establishing a national park should follow legitimate procedures, that is, competent departments should designate certain areas as national parks in line with certain procedures and implement planning and management.

Since 2006, some pilot programs on national parks have been carried out in Yunnan, Heilongjiang, Zhejiang and other provinces. However, developing tourism can bring signi fi cant economic bene fi ts and the general public has a strong demand for educational and recreational opportunities of protected areas. local governments may pay more attention to the brand effect and economic benefit the national parks can generate and thus respond actively to pilot programs. If they just want more revenues by utilizing natural resources under the pretext of establishing national parks, it is inevitable that environment and ecology will be damaged. Therefore, it will be dif fi cult to re fl ect the true bene fi ts of national parks.

In order to correct the chaotic pilot practices and build an orderly national park system, the central government carried out unified arrangement in 2015. Coordinated by National Development and Reform Commission (NDRC), 13 government ministries jointly issued a pilot scheme and selected nine pilot regions. Pilot work started in three national parks respectively in Sanjiangyuan (Three River Source Region) of Qinghai Province, Kaihua of Zhejiang Province and Shenlongjia of Hubei Province. As the fi rst pilot project, Sanjiangyuan National Park tries to,resolve the issue of fragmented regulation and law enforcement, build an ecological protection management system with clear ownership, well-defined power and responsibilities and effective regulation and set a benchmark for the construction of other national parks in China.

国家公园建设应体现从“管理”到“治理”的转变

建立国家公园体制，将在理念、体制及行动三方面带动生态治理现代化，助力生态文明建设。

理念上，国家公园体制的成功建立将会极大地提升和增强国家认同感和民族自豪感，凝聚全民生态保护的共识，汇集生态文明建设的合力。国家公园不仅是一种重要的保护地类型，更代表一国最具代表性的自然美景和文化遗迹，通过让人们全身心地接触美丽的自然景观和瑰丽的文化遗迹，生态保护意识落地生根，环境保护理念日益增强，从而产生对自然的爱护之情和对国家文化的赤子之心，并将逐渐体会到保护国家公园功在当代、利在千秋。这种直接通过自然和文化之美所汇集的生态保护意识能够成为推动生态治理现代化的强大精神力量。

体制上，完善保护地体系属于生态治理的典型内容。建立国家公园体制并非仅指设立国家公园这一类保护地，而是在对我国碎片化、高度重叠的各类保护地进行整合的基础上，充分考虑自然的整体性，用国家公园体制予以统领，解决人为碎片化生态系统的问题。另外，国家公园体制的建立又能够为解决生态治理现代化的关键问题提供深入研究的基础。解决国家公园内自然资源权属问题，能为深化自然资源资产产权改革，统一管理山水林田湖提供经验。明晰国家公园内保护及利用的界限，能够为科学设定资源消耗上线，划定生态保护红线，严守环境质量底线，构建国土生态安全空间提供解决思路。

行动上，国家公园建设中多元主体的参与是生态领域由“管理”向“治理”转变的典型。多国成熟的国家公园治理实践表明，国家公园从规划、建立到维护的整个动态过程，都需要国家、企业及公众多方力量的协同行动。中央需要做好对国家公园体制的顶层设计，承担主要及兜底的运营经费。地方则要落实配套制度，予以管理、维护等具体实践层面的支持。企业和其他社会组织，可以通过特许经营、社会捐赠、协助培训等为国家公园的发展提供资金和智力支持。而公众尤其是周边居民，不仅有机会成为国家公园的工作人员或志愿者，而且可以通过参观国家公园、支付相应的门票费用，作出自己的经济贡献。

Ecological governance: a symphony played by different stakeholders

The establishment of the national park system will promote ecological governance modernization and boost ecological progress in terms of awareness raising, institutional arrangement and action.

Regarding awareness raising, the success of the national park system can considerably enhance the sense of national identity and pride, build consensus on ecological protection and achieve synergy in promoting ecological progress. National parks are not only a type of important protected areas, but also represent the typical natural landscape and cultural heritage of a country.People can raise awareness of ecological protection and enhance the concept of environmental protection through appreciating the beautiful natural scenery and splendid cultural heritage so that they can love nature and the country more deeply and gradually understand that protecting national parks can bene fi t future generations. The enhanced awareness of ecological protection can become a powerful spiritual force in promoting ecological governance modernization.

Regarding institutional arrangement, On the one hand,improving the protected area system is the typical content of ecological governance. Establishing the national park system does not mean just setting up only one type of protected area like national parks. Rather, the national park system is used to resolve the issue of fragmented ecological by integrating different types of fragmented and highly overlapping protected areas by into one. On the other hand, the establishment of the national park system can enable us to do further research on the key issues of ecological governance modernization.Determining the property right of natural resources within the national parks can provide experience in deepening reform on property right of natural resource assets and unifying management of mountains, waters, forest, lakes and farmland. Clarifying the boundary between conservation and development within national parks can help us to set the upper limit for resource consumption in a scienti fi c way, draw a redline for ecological protection, strictly observe the bottom line for environmental quality and ensure national ecological security. Designing a comprehensive, scienti fi c, reasonable and well-regulated system of protected areas with national parks at the core which features clear division of responsibilities,rights and interests, stable investment and multi-stakeholder coordination will be instrumental in achieving ecological governance modernization.

Regarding action, involving different stakeholders in national park system is a typical example of transformation from ecological “management” to “governance”. Successful national park governance practices in different counties indicate that coordinated actions should be taken by State, enterprises and the public in the whole dynamic process of planning,establishing and maintaining national parks. The central government should conduct top level design of the national park system and cover the main operational expenses. The local governments should implement supporting mechanisms and provide support in management, maintenance and other specific issues. Enterprises and other social organization can provide financial and intellectual support for national parks through franchises, donations and educational and training activities. The public including local residents in particular not only have the opportunity to become staff or volunteers in national parks, but also can make economic contributions through visiting the parks and buying tickets.

应制定专门的《国家公园法》

长期以来，整合保护地体系难以推进的主要原因在于保护地法律依据的部门化和碎片化。虽然迄今已出台《自然保护区条例》《风景名胜区管理条例》《森林公园管理办法》《国家重点公园管理办法》等多个法规、部门规章及规范性文件，但是其适用范围受限于单个保护地类型，法律效力较低，实践中各行其是，缺乏统筹协调功能，难以实现建立国家公园体制的整体构想。因此，应制定专门的《国家公园法》，将国家公园体制的建立纳入法治化的轨道。

《国家公园法》总体思路应当包括五方面：第一，《国家公园法》是为了什么？这就需要在立法目的中正面回答保护优先于利用，避免出现含糊不清而使得保护优先的立法宗旨难以凸显。第二，国家公园是什么？法律定义需要在适当借鉴IUCN概念的基础上，全面考虑我国自然和人文资源的分布情况，突出面积、功能、国家及程序要素。第三，《国家公园法》怎么做？就基本原则而言，需要做到保护第一、保障公益、国家主导、科学指导。第四，《国家公园法》怎么用？本法的适用范围应当包括国家公园的设立、规划、保护、管理、利用、维护、监督等活动及行为。第五，谁对国家公园负责？这涉及不同主体的权利与义务：有关机构的职责应贯穿整个过程，既涉及管理体制的安排，又涉及经费、监督等方面；原住民、公众等应当拥有对国家公园进入、游憩、享受的权利，也应承担不因其利用而打扰到国家公园维持自然状态的保护义务。

此外，《国家公园法》应当对国家公园的设立标准、资源权属、规划报告、管理体制、资金投入、经营方式、监督措施、监测评估机制等重要内容的核心要义予以明确的规定，对于这些主要制度再通过详细的法规、实施细则或者管理类、技术类的规范予以落实。充分考虑国家公园的生态整体性和国家代表性，明确国家公园的资源权属，确保国家公园得到稳定的资金投入，实现对国家公园集中、高效、统一的保护管理。（作者单位：国务院发展研究中心资源与环境政策研究所）

Establishing a national park system based on the rule of law

The main reason why it has been difficult to integrate the system of protected areas for many years is that the legal framework for the protection is department-based and fragmented. Although several regulations, departmental rules and normative documents such as Regulation on Natural Protected Areas, Regulation on Scenic Spot Management, Administrative Measures on Forest Parks, Management, Administrative Measures on National Key Parks, etc. have been issued so far, each of them only covers one single type of protective area with low legal forces. In practice, each department in charge acts in its own way and there is no coordination, so it is dif fi cult to establish an integrated national park system. Therefore, we should enact a speci fi c national park law and bring the establishment of the national park system into the track of the rule of law.

Law on National Parks should include fi ve aspects in general: 1.What is the purpose of the law? The law should clearly de fi ne the principle of conservation coming before utilization so as to avoid ambiguity. 2. What is a national park? Based on the IUCN concept, the legal definition should take into consideration the distribution, area and function of China’s natural and cultural resources and national and procedural factors. 3.What should be included in the law? The general principles should be conservation first, ensuring public benefits, state playing a leading role and scienti fi c guidance. 4. How is the law used? The applicable scope should include the establishment,planning, conservation, management, utilization, maintenance and monitoring of national parks and other activities. 5. Who is responsible for national parks? This involves the rights and obligations of different stakeholders. The responsibilities of relevant organizations should be clearly defined regarding institutional arrangement, funding, supervision and other aspects. Local residents and the general public should have the right to have access to national parks for tourism and recreation.They should also shoulder the obligations of maintaining the natural state of national parks.

In addition, the law should clearly stipulate such important contents on national parks as the establishment standard,resource ownership, planning and report, management mechanism, funding, supervision and monitoring and assessment mechanism, etc. These main mechanisms should be implemented through making detailed regulations,implementation rules or management or technical standards.The ecological integrity and national representation of national parks should be taken into consideration. The ownership of national park resources should be clari fi ed to ensure national parks get stable fi nancial input to achieve integrated, ef fi cient and uni fi ed conservation and management.