国家公园领域财政事权划分改革研究

随着自然保护地的整合优化和财政体制改革的深入推进,对国家公园领域财政事权和支出责任进行明确划分、界定,对于建立健全国家公园领域资金保障机制具有重要意义,有助于建立政府间权责明晰、协同有序的国家公园治理体系。本文在梳理我国国家公园领域财政事权清单、分析财政支出责任划分现状及存在问题的基础上,根据中央有关国家公园事权的文件以及部门机构职责、中央和地方财政关系的制度特点,提出我国国家公园领域政府间财政事权和支出责任划分的总体思路与政策建议,为建立以国家公园为主体的自然保护地体系提供决策参考。     

中国自然保护地70年发展历程与成效

新中国成立70年来,我国自然保护地体系逐步完善。在生态系统与重要自然资源保护方面,形成了由自然保护区、风景名胜区、森林公园、地质公园、自然文化遗产、湿地公园、水产种质资源保护区、海洋特别保护区、特别保护海岛等组成的保护地体系。在生态空间保护方面,率先在国际上提出和实施生态保护红线,构建了以重要生态功能区、生态脆弱区和生物多样性保护区为主体的生态保护红线技术体系,成为我国新世纪一项重大生态保护工程,并开展了生态功能区划、主体功能区划。在保护机制上,于2015年启动了国家公园体制,并开展试点示范。本文从以上三个方面概要分析了我国自然保护地的发展历程和发展成效。     

国家公园:区域绿色发展的新平台

按照有关规定,旅游景区的外延在相当程度上与自然保护地重合,地方政府也习惯于将自然保护地打造成大众观光旅游景区或旅游度假区。但两者在管理体制、发展理念和目标、具体工作内容上都有明显区别,尤其在中央明确"建立以国家公园为主体的自然保护地体系"后,这种区别将使两者的发展分道扬镳。虽然不是旅游景区,但国家公园可以发展以国家公园体制和国家公园品牌体系为基础、依托国家公园特色小镇的国家公园旅游,采用三次产业的整合和升级将生态产品的价值可持续地增值变现,实现以旅游景区为定位的传统发展方式向以生态文明建设为宗旨的绿色发展方式的转变。     

论我国自然保护地公众参与制度的困境与出路

2019年6月《关于建立以国家公园为主体的自然保护地体系的指导意见》的颁布,指出自然保护地建设应“探索全民共享机制”,突出了公众参与制度的重要意义。在我国自然保护地建设过程中,公众参与制度虽然得到了较为广泛的关注,但仍面临诸多实践困境。通过分析现阶段自然保护地的立法和实践现状,探析公众参与制度在自然保护地建设中的适用路径和困境阻碍,对公众参与制度的立法表达、管理体系和保障机制等方面提出建议,从而进一步完善自然保护地中的公众参与制度,为推进我国生态文明建设提供制度支撑。     

自然保护地调整对油气田开发的影响

建立以国家公园为主体的自然保护地体系是贯彻习近平总书记美丽中国、生态文明思想理念的重要举措。文章梳理了自然保护地现状及保护地内油气田勘探开发面临的问题,通过分析自然保护地优化整合对油气田开发建设可能产生的影响,提出了充分利用自然保护地体系优化调整的契机,合理布局油气资源的勘探开发,推进能源建设与生态保护协调发展的模式建议。     

乡村绿色振兴的重要路径——基于浙江仙居国家公园经验

党的十九大报告提出了"实施乡村振兴战略",这为新时代"三农"工作和美丽中国建设都提出了新的目标、任务以及路径。要在以国家公园为主体的自然保护地率先实现乡村绿色振兴,第一,要形成绿色治理模式,使全民参与保护并能共享保护成果;第二,要形成与保护互促的生态产业或产业生态化的技术路线。对照"产业兴旺、生态宜居、乡风文明、治理有效、生活富裕"的总要求,浙江仙居国家公园以国家公园体制试点为龙头带动社区参与保护、共促发展方式转型,构建了以绿色公约、绿色资产清单、绿色货币为标志的"三绿"治理机制,与国家公园产品品牌增值体系一起初步实现了生态产品的价值转化,使乡村振兴的绿色化道路初露端倪。     

三江源国家公园自然资源资产管理体制改革实践与经验研究

健全全民所有自然资源资产管理体制,是实现自然资源资产合理使用和有效保护、发挥社会主义公有制优势、推动生态文明建设的重要举措.提炼三江源国家公园在自然资源资产管理体制改革过程中的典型实践,梳理其改革经验与启示,为探索建设以国家公园为代表的自然保护地体系内自然资源资产管理积累"青海经验"、做出"青海贡献".     

新时代西部大开发形成新格局中构建国家生态安全屏障

青海省生态地位独特而重要,在国家生态安全格局中具有无可替代的战略地位.进入新时代,如何在推进西部大开发形成新格局的进程中,牢记责任使命,确保"中华水塔"丰沛坚固,为维护国家生态安全做出新的贡献,是各级政府和相关部门面临的重大课题.文章从深度融入国家重大区域发展战略、加快推进以国家公园为主体的自然保护地体系建设、坚定不移...     

国家公园建设背景下的公益型保护地研究进展

当前我国自然保护地体系改革正处于关键时期,公益型保护地是一种利用社会公益力量,由政府监督、民间管理并协调保护与发展的新型保护地模式。该模式注重社会公益力量在自然保护地建设中的作用,能够补充已有保护地资金、技术和人力的不足,填补了我国目前保护地体系的空缺。本文论述了国家公园建设背景下的公益保护地的内涵,分析了当前公益保护地的特征,讨论了国内外公益型保护地的运营管理机制,包括土地权利的获得、基于协议保护机制的保护地运营、特许经营在保护地的实施和社区保护模式的成功经验。今后我国公益型保护地的建设应鼓励公益组织与民间力量参与,在管理理念上应坚持保护第一和公益性,促进管理体制转变和科学划定界限,并完善公益组织参与保护地建设的激励和监督机制。     

“保护青海湖、我是志愿者”行动启动 王建军刘宁提出工作要求

<正>2019年8月10日,由省委办公厅、省政府办公厅牵头的"保护青海湖、我是志愿者"行动在美丽的青海湖畔启动。省委书记、省人大常委会主任王建军,省委副书记、省长刘宁提出工作要求。省委常委、省委秘书长于丛乐讲话并向志愿者代表授旗,副省长田锦尘宣布"保护青海湖、我是志愿者"行动正式启动。王建军指出,开展"保护青海湖、我是志愿者"行动,是深入学习贯彻习近平总书记生态文明思想,推进以国家公园为主体的自然保护地体系示范省建设,形成人与自然和谐发展现代化建设新格局的重要内容,也是弘扬"奉献、友爱、互助、进步"志愿精神的重要载体。希望参与行动的广大志愿者,以尊重自然、顺应自然、保护自然的情怀,推进生态优先、绿色发展,还青海湖以宁静、和谐、美丽,让生态文明之花在青海湖畔绚丽绽放,让志愿行动成为青海湖畔     

Toward Sustainable Management of National Parks in Japan: Securing Local Community and Stakeholder Participation

Japan’s national park system constitutes a potentially viable mechanism for securing local community participation and building stakeholder consensus for sustainable park management, although the potential of this system is yet to be fully maximized. This article gives an overview of the system of protecting natural resources in Japan, focusing on the national park system. Parks are managed by zoning and regulation, which is unique in that land is not “set aside” for nature conservation, but designated as national park wherever the need to preserve “scenic beauty” has been recognized, regardless of land ownership or land use. Although resource conservation under this system has been problematic, it has advantages, especially in terms of community participation. This article demonstrates that in order to reach the system’s potential, the park authority must act as coordinator of stakeholders and facilitator of bottom-up approaches to decision-making. In order to do this, steps that must be taken include the following: identifying the various stakeholders in park management and defining the “local community”; clarifying the roles and responsibilities of each stakeholder; and supporting consensus-building among stakeholders regarding the objectives and long-term vision of each park. By taking these steps, it would be possible to build a park management system that overrides government boundaries and involves local communities. This will enable the park authority to address the challenges facing Japan’s complex system of conserving natural resources, and move towards sustainable management of natural resources in Japan.     

山东省自然保护区建设与管理发展的新态势

通过对山东省自然保护区进行研究发现,山东省自然保护区建设与管理虽然在自然保护区建设规模、类型、管护能力和主要保护对象等方面取得了新的成绩,但同时也存在自然保护区多区交叉重叠、资源本底不清、管护压力大与能力不足等新问题。随着国家公园、主体功能区和生态补偿制度的实施,山东省自然保护区建设与管理应深化自然保护区管理体制改革,提升自然保护区建设质量,加强自然保护区基础设施规范化建设。     

中国自然保护区管理面临的问题及对策选择

中国已经初步形成了布局较为合理、类型较为齐全的自然保护区网络。但自然保护区管理面临一系列问题,如管理体制本身的弊端,资金缺乏,基础设施落后、缺乏,科研工作相当薄弱等,需要采取改革管理体制、加强参与式管理、扶持社区经济发展、加强保护区建设项目的环境监管、保障保护区资金投入等措施,促进保护区的可持续发展。     

A Method for assessing protected area allocations using a typology of landscape values

Traditional park and reserve selection techniques that rely exclusively on expert assessment can marginalize local knowledge and values in the review process. Using survey data from the Otways region of Victoria, Australia, we present a method that differentiates between public and private lands using locally perceived landscape values. The results are used to assess prospective national park expansion areas. Two data models of mapped landscape values—vector and raster—were analysed using discriminant analysis to classify and predict land status. Results indicate survey respondents hold more indirect and less tangible values for national parks and reserves, and more direct use values for private lands. There was moderate agreement between public and expert-derived national park boundaries. The mapping of local landscape values appears useful in planning and reviewing public land classifications, and when combined with biological assessments, can strengthen protected areas planning and management in Australia and elsewhere.     

四川龙泉湖自然保护区可持续性评价与撤销建议

龙泉湖自然保护区位于川中盆地西缘,以石盘水库为保护对象。本文首先从自然生态条件、资金与管理、周边社区发展3方面,选取稀有性、多样性、自然性、典型性、面积适宜性、资金状况、管理状况、社区发展8项指标,构建我国自然保护区可持续性综合评价的指标体系。对于面积适宜性,笔者统计得出判别功能区面积比是否适宜的标准,将该指标具体细化。核心一缓冲一实验区面积的合理比例约为0．4：0．1～0．2：O．5～0．4。以这一指标体系,对该保护区予以评分,验证该指标体系的可操作性。评分结果龙泉湖保护区仅得33分,处于不可持续水平。限制因素在自然生态、管理方面,尤其是生态功能重要性太低。进而分析该保护区不具备自然属性,动、植物物种数占四川省的比例很小,无特殊保护价值;且至今未设立保护区管理机构,无专业管护人员,不能履行管理职责。因此,本文建议撤销龙泉湖省级自然保护区,改设为省级水利风景区或湿地公园。     

Interactions Between Spatially Explicit Conservation and Management Measures: Implications for the Governance of Marine Protected Areas

Marine protected areas are not established in an institutional and governance vacuum and managers should pay attention to the wider social–ecological system in which they are immersed. This article examines Islas Choros-Damas Marine Reserve, a small marine protected area located in a highly productive and biologically diverse coastal marine ecosystem in northern Chile, and the interactions between human, institutional, and ecological dimensions beyond those existing within its boundaries. Through documents analysis, surveys, and interviews, we described marine reserve implementation (governing system) and the social and natural ecosystem-to-be-governed. We analyzed the interactions and the connections between the marine reserve and other spatially explicit conservation and/or management measures existing in the area and influencing management outcomes and governance. A top-down approach with poor stakeholder involvement characterized the implementation process. The marine reserve is highly connected with other spatially explicit measures and with a wider social–ecological system through various ecological processes and socio-economic interactions. Current institutional interactions with positive effects on the management and governance are scarce, although several potential interactions may be developed. For the study area, any management action must recognize interferences from outside conditions and consider some of them (e.g., ecotourism management) as cross-cutting actions for the entire social–ecological system. We consider that institutional interactions and the development of social networks are opportunities to any collective effort aiming to improve governance of Islas Choros-Damas marine reserve. Communication of connections and interactions between marine protected areas and the wider social–ecological system (as described in this study) is proposed as a strategy to improve stakeholder participation in Chilean marine protected areas.     

Cross-boundary issues for national parks: What works “on the ground”

In recent years, cross-boundary management has become an essential part of park management. In this article we compare the perspectives of managers of several US national parks to the advice on this issue presented in the published literature. Data were obtained from interviews of the superintendents, assistant superintendents and resources managers of five major western national parks and from a survey of participants in a NPS workshop attended by park superintendents, scientists, and resource managers; law enforcement personnel; and interpreters. Three themes related to boundary management were consistently stressed by park managers: (10 a lack of sufficient funds and personnel within the parks; (2) the need for reliable information on both political and natural processes; and, (3) the importance of personal interactions between park staff and individuals from the surrounding area. Basic data collection, the documentation of trends, cooperative groups and personal contacts, educational programs, and land acquisition were the most useful strategies. A lack of funds and information, ineffective communication, enforcement problems, and a lack of motivation for parties to reach a negotiated agreement were the most serious obstacles. A wide range of valuable institutional knowledge concerning boundary management exists within the National Park Service; however, there appears to be a gap between published strategies and the approaches that work “on the ground”.     

我国自然保护区的土地权属问题研究

建立自然保护区是开展自然保护工作的重要基础。自然保护区的建立首先面临的就是自然保护区的土地权属问题，即自然保护区的土地归谁所有，归谁使用等。本文首先介绍了我国自然保护区土地权属的现状，分析存在的问题，结合我国土地管理的历史背景，指出导致我国自然保护区土地权属不清的原因所在，并分析了土地权属不清所带来不良后果，如自然保护区内资源的过度开发利用、与周边社区纠纷不断等。最后，本文通过借鉴国外自然保护区土地权属管理的经验，结合我国土地权属管理的具体情况，提出解决我国自然保护区土地权属问题的途径。     

Cross-boundary management between national parks and surrounding lands: A review and discussion

Protecting biodiversity on public lands is difficult, requiring the management of a complex array of factors. This is especially true when the ecosystems in question are affected by, or extend onto, lands outside the boundaries of the protected area. In this article we review recent developments in the cross-boundary management of protected natural resources, such as parks, wildlife reserves, and designated wilderness areas. Five ecological and 11 anthropic techniques have been suggested for use in cross-boundary management. The categories are not mutually exclusive, but each is a distinct and representative approach, suggested by various authors from academic, managerial, and legal professions. The ecological strategies stress the collection of basic data and documentation of trends. The anthropic techniques stress the usefulness of cooperative guidelines and the need to develop a local constituency which supports park goals. However, the situation is complex and the needed strategies are often difficult to implement. Diverse park resources are influenced by events in surrounding lands. The complexity and variability of sources, the ecological systems under protection, and the uncertainty of the effects combine to produce situations for which there are no simple answers. The solution to coexistence of the park and surrounding land depends upon creative techniques and recommendations, many still forthcoming. Ecological, sociological, legal, and economic disciplines as well as the managing agency should all contribute to these recommendations. Platforms for change include legislation, institutional policies, communication, education, management techniques, and ethics.