国家公园事权划分研究——基于不同管理模式视角

Research on the division of administrative powers in national parks: a perspective from the different management modes

  • 摘要: 科学合理的事权划分是建立统一规范高效国家公园体制的基础。国家公园体制改革是对国家公园这一以提供生态产品或生态服务为主导功能的国土空间治理体系的重构。目前, 我国国家公园已基本建立起统一的管理机构, 但是多数“三定”规定仍未出台, 管理机构的职能配置还不明晰, 国家公园事权划分仍然存在不同程度的不清晰、不合理、不规范等问题。在总结我国国家公园事权划分相关顶层设计的基础上, 以国家公园全过程管理涉及的设立、建设、运行、管理、评估、监督等各环节为主线, 梳理国家公园管理涉及的相关事务, 形成国家公园事权清单。基于“执行效率发挥、政策法规导向、治理效能彰显”三个维度, 从中央垂直管理、中央委托省管、中央与省共管三种管理模式的视角, 对国家公园事权进行了差异性化的划分。建议从法制化、资金保障、跨部门协调合作等方面建立保障机制, 推动国家公园事权的有效履行。

     

    Abstract: The scientific and rational division of administrative powers is the basis for establishing a unified, standardized, and efficient national park system. For national parks with ecosystem products or ecosystem services as the dominant function, institutional reform actually means the reconstruction of their land space governance system. Although unified management institutions have fundamentally been established within national parks in China, numerous "three determinations" regulations (i.e., the determination of the function, organization and staffing of the governmental organs) are yet to be promulgated, and the functional configuration of these management institutions is still not clear enough. The division of administrative powers in national parks continues to exhibit various degrees of ambiguity, irrationality, and non-standardization. Following an intensive review of top-level designs related to the division of administrative powers in China's national parks, a strategic route is proposed that focuses on all aspects of comprehensive national park management, including establishment, construction, operation, administration, evaluation, and supervision. This approach helps to better sort out the relevant affairs involved in national park management, and then compile a directory of administrative powers within national parks. Utilizing three dimensions of "implementation efficiency, policy and regulation orientation, and governance effectiveness demonstration", the division of administrative powers in national parks is distinguished from the perspective of the three management models of central vertical management, central entrusted provincial management, and central and provincial co-management. In this regard, it is recommended to establish corresponding guarantee mechanisms through legalization, financial support, cross-departmental coordination, thereby promoting the effective implementation of the division of administrative powers within national parks.

     

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