法国大区公园经验对钱江源国家公园体制试点区跨界治理体系构建的启示

建立国家公园的目的之一是保护生态系统的原真性和完整性。然而, 生态系统完整性和原真性保护不仅面对交叉重叠、多头管理导致碎片化管理问题, 还要面对行政区划进一步造成的碎片化和管理分割的现实。钱江源国家公园体制试点区地跨浙江、安徽和江西三省, 存在国家公园跨界治理过程中的三大普遍问题: 跨界协同治理空间边界划定、生态保育政策及执行不统一、毗邻社区居民生计对自然资源依赖与生态保护目标的矛盾。文章借鉴法国大区公园治理经验, 依据《建立国家公园体制总体方案》精神, 提出钱江源国家公园跨界治理中必须形成一个政府主导(公园管理机构为代表), 企业、社区居民和第三方组织共同参与的多元主体协同治理组织框架, 并针对上述三个问题, 提出通过第三方组织参与方式实现跨越行政壁垒的统一保护、通过社区协议保护方式实现保护标准的统一、通过国家公园产品品牌增值体系实现保护与发展的可持续性。

Cross-border governance system construction of Qianjiangyuan National Park pilot by referring to the experience of French regional parks

The function of establishing national parks is to protect the authenticity and integrity of the ecosystem. However, ecosystem integrity and the authenticity face not only overlapping protection, but also the management division and fragmentation problems due to administrative division. Qianjiangyuan National Park pilot is a region spanning Zhejiang, Anhui, and Jiangxi provinces. There are three common problems in the process of cross-border management of Qianjiangyuan National Park: delineation of the collaborative governance spatial boundary, discrepancy of the policy of ecological conservation and its implementation, and contradiction between the living reliance on natural resources and the goal of ecological protection. Learning from the experience of French regional parks governance, this paper puts forward that the Qianjiangyuan National Park must form a government-led (represented by the park management agency), a multi-subject cooperative governance framework involving enterprises, community residents and non-governmental organizations. At last, in view of the above three problems, it is proposed to realize the unified protection across administrative barriers through the third-party participation, the unification of protection standards through the community agreement protection, and the sustainability of protection and development through the national park product brand value-added system.