社区为主体的保护: 对三江源国家公园生态管护公益岗位的思考

社区参与是实现生物多样性保护目标的重要途径, 也是我国国家公园建设的重要组成部分。青海省三江源国家公园在前期试点中设置了16621个生态管理公益岗位, 当地牧民因此成为三江源保护的主要力量。本文通过对三江源地区已进行的生态管理公益岗位的调研发现, 由于传统文化和环保宣传的影响, 三江源当地藏族牧民具有较高的保护环境意识和参与保护行动的强烈愿望, 生态公益岗位是对这种愿望的良好回应。但在实践中, 因为需要兼顾提升生态保护成效、提升牧民收入、扶贫等多重目标, 生态管护员的选拔、管理、考核等并未按照最大化保护成效的方式进行。国家公园试点村中, 生态管护员全部由贫困户担任的方式, 实质上是将完成扶贫目标摆在了完成自然保护目标之前。这样的选择方式有着深刻的制度根源。为了进一步提升国家公园内生态公益岗位的保护成效, 我们认为应当明确生态管理公益岗位的定位, 明确提升保护成效是第一位的任务; 应当改进现有体制, 使基层政府有更多资源和空间组织管护工作, 并增加社区的参与程度。在这一过程中, 有民间机构参与的广阔空间。

An observation to the new initiative of community conservation guard posts in the pilot Three-River-Source National Park

Community-based conservation has been proven as an effective approach for biodiversity conservation, and is an important part for National Parks in China. As the first pilot of the new national park system in China, the Three-River-Source National Park initiated a new arrangement to employ 16,621 villagers from each household living in the national park to serve as conservation guards. Local Tibetan herders take the main responsibility of Sanjiangyuan conservation and in return receive payments from the national park. Such an arrangement coincides with local people’s willingness of participating in conservation, influenced by traditional Tibetan Buddhist culture. However, in addition to conservation, poverty alleviation is set as a priority target especially when guards were selected, which to certain extent compromised the effectiveness of conservation. While understanding the needs of poverty alleviation, we analyzed institutional rationales of such a selection, and made policy suggestions that conservation targets should become the first priority and more resources and space should be allocated to local governments and communities for self-governance on conservation decisions and actions. NGOs may also contribute to assist these practices.