基于森林管理视角的中国国家公园探索

发布时间：2018-07-03 00:39

本文选题：风景园林 + 国家公园　；参考：《中国林业科学研究院》2015年硕士论文

【摘要】：目前,自然保护区、风景名胜区、地质公园、森林公园等众多的管理主体,交叉行使行政权力,彼此争夺管理地盘,造成了多头管理、权责不清、行政资源浪费等多种乱象,严重影响了资源的有效管理和合理利用,带来一系列衍生的自然和社会问题。如何有效解决这些问题,成为事关国计民生的迫切内容。一些发达国家的路径措施为我们提供了可以借鉴参考的案例,国家公园体制的构建便是其中之一。党的十八届三中全会提出了“建立国土空间开发保护制度,严格按照主体功能区定位推动发展,建立国家公园体制”的新要求。2014年8月,国务院印发了《关于促进旅游业改革发展的若干意见》(国发[2014]31号),其中提到的第一项任务就是:稳步推进建立国家公园体制,实现对自然和文化遗产地更有效的保护和利用,并要求2015年底前取得阶段性成果。在这样的政策引导下,全国学术界、相关政府部门就国家公园的问题展开了热烈讨论。林业部门管理着45.6亿亩林地、8亿亩湿地、8.3亿亩沙地,依托这些资源,不仅林业部门批建了大量自然保护区、森林公园、湿地公园和沙漠公园,其面积占到国土面积的15%,而且其它部门利用这些资源也批建了大量的风景名胜区、地质公园等类型的保护地,造成了机构重叠、多头管理,这也是我国保护地与国外国家公园的最大区别。陆地上绝大部分的精华风景资源均在林业部门建设管理的区域之中,陆地上拟新建的国家公园很难规避开这些资源而建立,现在国家提出建立国家公园体制,那么,新建的国家公园与各类保护地之间是什么关系,我国保护地存在的问题的根源是什么,国家公园能解决这些问题吗?为此,结合自己多年的工作经验和实践积累,从森林管理角度切入,梳理我国各类保护地与森林管理之间的众多联系和矛盾,分析我国保护地存在问题的原因,试图找出我国国家公园建设的路径,为我国国家公园建立从一个新的角度引发思考,对学术界、政府部门在进行建立国家公园探讨时未将森林管理摆上重要位置的情况作了有益的完善和补充,将为国家公园体制建设、自然资源资产产权制度、国有林场改革、国有林区改革、集体林权改革等方面提供一定的参考。研究课题确定后,首先是向林业、住建、国土等政府部门查询相关数据,从网上大量收集相关材料,向多年从事自然保护区、风景名胜区、地质公园、森林公园等工作的专家及业内人士咨询、请教,向国外的朋友发函寻求资料,其次赴实地考察与调研,然后运用文献综合研究法、统计归纳法、系统分析法、图表分析法、比较研究法、实地调研法和专家访谈法等,形成文本初稿,再请导师、专家审核,反复修改,最后定稿,一共形成了五个章节的研究成果,遵循背景导入——提出问题——分析问题——解决问题的思路。第一章主要对背景概况进行分析,第二章提出问题,三章分析问题,第四章解决问题,第五章得出基本结论,并进行总结讨论。第一章首先明确此论文研究的背景和意义,研究目标和技术路线,并对国内研究现状进行了分析,为问题的引入和提出做了铺垫;第二章以国内外国家公园概况为框架体系,对国外国家公园内容和管理体制进行研究的基础上,探讨国家公园的内涵、特征和管理机制,与此同时,通过对国内“国家公园”进行研究梳理,整理分析涉及到的国家公园相关概念,力求理清国内“国家公园”的发展轨迹,并结合国内对国家公园的争论进行思考,明确国家公园的生态性及其与森林公园之间的密切联系。第三章以国家公园与森林资源的关系作为切入点,试图找出两者之间的彼此支撑体系和相互制约机理,从森林管理的视角分析国家公园建设中存在的问题及其产生的原因。第四章立足于解决问题,结合我国国情和发展现状,从资源保护开发、部门整合协作、法律完善明确三个方面提出我国建立国家公园的途径,是本论文的核心内容和重要创新之处。第五章对全文进行总结、讨论和展望。对我国国家公园建设应遵循的原则和步骤做初步探讨,并就论文的不足和需要进一步研究的问题做出明确说明,以期为未来深入研究做一定的引导。总而言之,建立国家公园以保护生态系统和保护生物多样性为目的,国家公园和森林资源有着非常紧密的关系。世界国家公园的概念、内涵和特征,均强调了国家公园对自然、生态、物种、生态群落的保护,国家公园的发展目标与森林管理的目标具有高度一致性。森林资源管理是国家公园建设的突破口,国家公园建设是森林资源管理的推进器。国家公园以自然资源、生态系统、野生动植物等为基础,国家公园是我国自然保护地体系中的重要完善和补充,应当坚持以自然资源资产产权部门为主体进行国家公园建设,建立归属清晰、权责明确、监管有效的森林资源产权制度。林业部门作为陆地最大生态系统——森林生态系统的主要管理者和保护者,应切实肩负起国家公园建设的神圣使命。国家公园建设过程中必须解决与森林管理严重重合、与森林法规存在抵触、与森林管理部门存在利益分割的问题。充分考虑森林管理的内在需求,建立由发展改革、国土、林业、环保、建设、文物、宗教、海洋等部门共同参与、协同有效的国土空间监测管理工作机制。立足国情与借鉴国际经验相结合、着眼长远与夯实基础相结合、创新重建与问题治理相结合,进行资源整合、部门整合、法规整合,分阶段实现近期、中期、远期发展目标的渐进化战略步骤。
[Abstract]:At present, many management subjects such as natural reserve, scenic area, Geopark, Forest Park, etc. cross exercise administrative power and compete for each other to manage the territory, resulting in multiple management, unclear power and responsibility, waste of administrative resources and so on, which seriously affect the effective management and rational use of resources, and bring a series of natural and social derivatives. How to effectively solve these problems has become an urgent matter for the national economy and the people's livelihood. Some developed countries' path measures provide us with reference cases, and the construction of the national park system is one of them. In the third Plenary Session of the 18th CPC Central Committee, the party proposed the establishment of the national space development and protection system, strictly according to the main body. In August.2014, the State Council issued a number of comments on promoting the reform and development of tourism (national hair [2014]31). The first task mentioned is to promote the establishment of the national park system steadily and to achieve more effective protection and benefit to natural and cultural heritage sites. Under the guidance of this policy, the relevant government departments, under the guidance of this policy, launched a heated discussion on the issue of national parks. The forestry department manages 4 billion 560 million mu of woodland, 800 million mu of wetlands, and 830 million mu of sandy land, depending on these resources, not only the Forestry Department has built a large number of natural reserves and forests, but also the forestry department has built a large number of natural reserves and forests. Parks, wetland parks and desert parks account for 15% of the land area, and other sectors have built a large number of scenic spots, geoparks and other types of protected areas, resulting in overlapping institutions and multi head management, which is the biggest difference between China's protected and outside national parks. Most of the land on land is fine. China's scenic resources are all in the area of the construction and management of the forestry department. The newly built national park on land is difficult to avoid the establishment of these resources. Now the state puts forward the establishment of the national park system, then what is the relationship between the new national park and the various kinds of protected areas, and what is the root of the problems in the protection of the land in our country, and the state. Can the park solve these problems? To this end, combined with many years of work experience and practice, from the perspective of forest management, this paper combs the many links and contradictions between various types of protected land and forest management in our country, analyzes the reasons for the existing problems in China's protection, and tries to find out the path of national park construction in China, for the National Park of our country. From a new point of view, the establishment of the national park system, the property rights system of natural resources, the reform of the state-owned forest farm, the reform of the state-owned forest areas, the reform of the state-owned forest areas, the reform of the collective forest rights, etc. After the research project is determined, the first is to inquire the relevant data from the government departments of forestry, housing, land and other government, collect a lot of relevant materials from the Internet, consult with the experts of the natural reserves, scenic spots, geoparks and Forest Park for many years, ask for teaching, and seek letters to friends from abroad. Information, then to the field investigation and research, and then use the literature comprehensive research method, statistical induction, system analysis, chart analysis, comparative research, field investigation and expert interview, etc., form the first draft of the text, and then ask the tutor, expert review, repeated revision, final finalization, a total of five chapters of the research results, following the background of the background, following the background The first chapter mainly analyzes the background situation, the second chapter puts forward the problem, the three chapter analyzes the problem, the fourth chapter solves the problem, the fifth chapter draws the basic conclusion, and carries on the summary discussion. The first chapter first clearly confirms the background and significance of the thesis research, the research goal and the technique. The second chapter, on the basis of the general situation of national parks at home and abroad, studies the content and management system of foreign national parks, discusses the connotation, characteristics and management mechanism of national parks, and at the same time, through the national "country". The park "studies and combs, collates and analyzes the related concepts related to national parks, strives to clear the development track of national parks in China, and combines the domestic debate on national parks to make clear the ecological nature of national parks and their close ties with the Forest Park. The third chapter is about national parks and forest resources. As a breakthrough point, the Department tries to find out the supporting system and the mutual restriction mechanism between the two and analyzes the problems and causes in the construction of national parks from the perspective of forest management. The fourth chapter is based on solving the problems, combining with the national conditions and development status of our country, from the protection and development of the resources, the integration of departments and cooperation, and the perfect and clear law. The three aspects put forward the way to establish the National Park in our country, which is the core content and the important innovation of this paper. The fifth chapter summarizes the full text, discusses and predicts the principles and steps to be followed in the construction of national parks in China, and gives a clear explanation of the shortcomings of the paper and the problems that need further study. In a word, national parks are very closely related to the protection of ecosystems and biodiversity conservation. The concept, connotation and characteristics of the national parks have emphasized the protection of natural, ecological, species and ecological communities by the national parks. The development goal of the family park is highly consistent with the goal of forest management. Forest resource management is the breakthrough point of national park construction. National park construction is the propeller of forest resource management. National Park is based on natural resources, ecosystem and wild animals and plants, and national park is an important part of China's natural protection system. To improve and supplement, we should adhere to the construction of national park with the property rights department of natural resources assets as the main body, and establish a forest resource property right system with clear ownership, clear power and responsibility and effective supervision. As the largest ecosystem of land, the main manager and protector of the forest ecosystem, the forestry department should bear the national park construction. In the process of building the National Park, it is necessary to solve the serious reintegration with the forest management, conflict with the forest regulations, and the problems of the division of interests with the forest management departments. The internal needs of the forest management should be fully considered and the departments of development reform, land, forestry, environmental protection, construction, cultural relics, religion, and the ocean are jointly established. On the basis of the effective mechanism of land space monitoring and management, based on the combination of the national conditions and the reference of international experience, the combination of long-term and rammed foundation, the combination of innovation and problem management, the integration of resources, the integration of departments and the integration of laws and regulations, the gradual and evolutionary strategic steps of the short-term, medium-term and long-term development goals are realized in stages.
【学位授予单位】：中国林业科学研究院
【学位级别】：硕士
【学位授予年份】：2015
【分类号】：TU986.54

【参考文献】