《风景园林》2023-10刊首语 | 张玉钧：国家公园的适应性规划与管理

全文刊登于《风景园林》2023年第10期 P8-9

国家公园的适应性规划与管理

Adaptive Plan and Management of National Park

国家公园作为中国自然保护地体系的主体类型，以生态系统的有效管理为主要建设目标，所保护的空间是中国自然生态系统最重要、自然景观最独特、自然遗产最精华、生物多样性最丰富的部分。国家公园为建设生态文明和美丽中国提供了支撑保障。在此之前，组织试点、加强顶层设计、制定相关标准、成立第一批国家公园以及制定国家公园空间布局方案等系列工作，使得国家公园建设在总体上朝着统一、高效和规范的方向发展，同时这也标志着中国国家公园进入稳步建设时期。

处在建设时期的国家公园，在管理制度方面至少面临十大任务。第一，创建设立管理制度。为此需要提出国家公园创建设立期的主要任务与工作流程，为国家公园规范化发展提供明确的阶段安排。第二，规划设计制度。综合提出国家公园规划体系，细化和落实国家公园的发展目标。第三，生态系统管理制度。国家公园所在的生态系统属于中国国土空间最重要的生态系统类型，通过对其关键的生态过程和生态数据进行长期监测，从而实现国家公园所在生态系统的整体性和可持续性管理。第四，自然资源资产管理制度。建立明晰的自然资源产权制度、实现国家公园自然资源确权是自然保护地体系建设优化的关键工作。第五，全民共享管理制度。全民公益性是国家公园建设管理的重要理念。借助国家公园内优越的自然与文化资源，重点在自然教育、生态旅游、自然游憩几个方面做好工作并制定规范，为公众提供更多贴近自然、认识自然、享受自然的机会，是实现国家公园全民共享的重要条件。第六，特许经营管理制度。特许经营是国家公园生态系统保护市场化机制的一种制度设计。探讨特许经营制度，有助于提高国家公园自然资源资产的利用水平，助力国家公园生态产品价值的高效实现。第七，公众参与管理制度。中国国家公园公众参与机制的关键是公众参与程序以及保障体系的建立，最终实现公众参与机制在技术操作层面及立法层面规范化、制度化和常态化。第八，社区协调管理制度。建立国家公园与社区关系的协调机制是决定国家公园建设成效的重要因素。解决原住民矛盾的关键在于与之搭建伙伴关系，形成双向沟通渠道，达成共同治理。第九，监测评估管理制度。对国家公园生态系统及其文化资源的保护、修复、利用与管理活动和成效进行监测和评价，以适时调整管理过程。第十，资金保障管理制度。资金投入保障制度的建立是现有国家公园等自然保护地发展的重要支撑。构建一套适合中国国情的国家公园资金投入保障制度，将有助于新型自然保护地体系的全面可持续发展。

在当前形势下，实施适应性管理是实现国家公园所在区域生态系统可持续目标的最佳途径。依托上述管理制度，建立可实现的适应性管理目标，并通过科学的管理、监测和调控活动，满足现有国家公园的生态系统容量和区域社会经济需求变化。本期专题围绕国家公园的“荒野”“游憩”“社区”“空间管控”以及“规划”等议题，从不同侧面深入探讨了国家公园的适应性规划与管理方法，期待能为未来国家公园的建设发展提供多渠道的路径选择。

As the main type of China’s system of natural protected areas, national parks take effective management of ecosystems as the main goal of their construction, and the protect space is the most important section of China’s natural ecosystems, with the most unique natural landscapes, the best natural heritages, and the richest biodiversity. National parks provide support and guarantee for building up the ecological civilization and Beautiful China. Previously, through a series of efforts, such as organizing pilot projects, strengthening top-level designs, formulating relevant standards, establishing the first lot of national parks, and making spatial layout plans for national parks, the construction of national parks has generally developed in the direction of unity, efficiency and standardization, indicating that China’s national parks are moving into a period of steady construction. 

In their construction period, national parks are facing at least ten major tasks in terms of management regimes. First, management rules for creation and establishment. For this purpose, it is necessary to specify the major tasks and workflows during the creation and establishment period of national parks, so as to provide a clear phasewise arrangement for the standardized development of national parks. Second, rules for planning the design, i.e., comprehensively putting forward the planning system of national parks, and refining and implementing their development goals. Third, management rules for ecosystems. The ecosystems where national parks are located are the most important ecosystem types in China’s territorial space. By long-term monitoring of the key ecological processes and data, it is possible to deliver on a holistic and sustainable management of such ecosystems. Fourth, management rules for assets of natural resources. A key task for constructing and optimizing the system of natural protected areas is to establish a clear regime for natural resource property rights and clarify the rights of natural resources in national parks. Fifth, management rules for sharing by the whole people. The public welfare for all the people is an important philosophy in the construction and management of national parks. By virtue of the superior natural and cultural resources in national parks, tasks can be delivered and regulations can be formed in such key aspects as nature education, eco-tourism, and nature recreation, so as to provide the public with more opportunities of getting close to nature, understand nature, and enjoy nature. This is an important condition for realizing the sharing of national parks by all the people. Sixth, management rules for franchise operation. Franchise operation is a kind of institutional design of the market-oriented mechanism for ecosystem protection of national parks. The system for franchise operation is conducive to boosting the utilization of natural resource assets in national parks, while helping with an efficient realization of the value of ecological products of national parks. Seventh, management rules for public participation. The key to establishing a mechanism for the public to participate in China’ national parks lies in the foundation of public participation procedures as well as the guarantee system, so as to ultimately realize a standardized, institutionalized and normalized public participation mechanism both at the technical operation level and the legislative level. Eighth, management rules for coordination with communities. A coordination mechanism for the relationship between national parks and communities is an important factor for the effectiveness of national parks’ construction. The key to resolving conflicts with indigenous people is to create a partnership with them, so as to form two-way communication channels and implement joint governance. Ninth, management rules for monitoring and evaluation. It is necessary to monitor and evaluate the activities and effectiveness of protecting, restoring, utilizing and managing national parks’ ecosystems and cultural resources, in order to adjust the management process in a timely manner. Tenth, management rules for financial guarantee. A funding guarantee system is an important support for the development of the existing national parks and other nature reserves. A set of funding guarantee system for national parks that is suitable for China’s national conditions will facilitate the comprehensive and sustainable development of the new system of natural protected areas.

In the current situation, to implementing adaptive management is the best approach to realizing the goal of sustainability of the ecosystems where national parks are located. Underpinned by the management rules as stated above, it is possible to set up achievable adaptive management objectives; and with scientific management, monitoring and regulation activities, we can meet the changing demand in terms of the ecosystem capacity of the existing national parks as well as regional socio-economic conditions. The topic of this issue will be focused on such topics as “wilderness”, “recreation”, “community”, “spatial management and control” and “planning” of national parks, with an intention to explore the adaptive plan and management methodology of national parks from different aspects in an in-depth manner. It is hoped that we could provide multiplechannel path selections for the construction and development of national parks in the future.

本期专题组稿人：张玉钧

Acquiring editor of the current issue: ZHANG Yujun

2023年9月10日

September 10, 2023

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