中国首批国家公园体制试点的经验与成效、问题与建议

建立国家公园体制是建设生态文明制度的重要内容，是解决我国自然保护地发展过程中存在的重叠设置、多头管理、边界不清、权责不明、保护与发展矛盾突出等问题的重大举措。根据国家统一部署，2020年要设立一批国家公园，分级统一的管理体制基本建立。在跨时2年的资料收集、实地考察基础上，全面总结首批10个国家公园体制试点的经验与成效，梳理试点过程中存在的问题，并提出针对性建议，以期全面展现国家公园体制试点的最新进展，为国家公园深化建设提供参考和依据。结果显示，各试点区基本建立起分级统一的管理体制，创新了运行机制，保护力度持续加强，资金投入不断加大，科研合作不断深化，社会参与逐渐扩大。体制试点产生了明显的生态成效，民生改善初步显现，社会效益充分彰显。但是，仍然存在管理机构级别和类型参差不齐，法律制度不健全，资金保障长效机制未建立，人才队伍建设滞后，保护与发展的矛盾突出，空间范围不合理等问题。建议采取必要措施改进存在的问题，积极推广有效经验，加快健全国家公园体制。

Experiences, achievement, problems and recommendations of the first batch of China's national park system pilots

The establishment of a national park system is an important part of China''s efforts to promote its ecological progress. It is also a major measure to solve the problems such as the overlapped setting, management by multiple agencies, unclear boundaries, confusing rights and responsibilities, as well as severe clashes between conservation and development, in developing China''s protected areas. According to the unified deployment of the central government, a batch of national parks will be formally established, and a unified management system at different levels will be basically in place by 2020. Based on two years of data collection and field research for the first batch of 10 national park pilots, this paper summarized the experiences and achievements, sorted out the existing problems, and proposed the targeted recommendations. The paper aims to fully display the latest progress of the national park system pilots and provide reference and basis for promoting the comprehensive construction of China''s national park system. The results show that each pilot area has basically established a hierarchical and unified management system and innovated the operating mechanisms. Conservation has been strengthened, capital investment has gradually increased, scientific research cooperation has deepened, and public participation has gradually enhanced. The national park system pilots have produced obviously ecological effects and the social benefits, as well as initially improved the people''s livelihood. However, there are still problems such as uneven level and type of management institutions, incompletely legal system, failure to establish a long-term fund guarantee mechanism, lagging in the construction of talent teams, prominent contradictions between protection and development, and unreasonable spatial scope. We suggest that the necessary measures should be taken to improve the existing problems, the effective experiences should be promoted actively, and the construction of the national park system should be accelerated.