中国国家公园野生动物致害补偿政策现状、实践模式及优化路径

Research on the current situation, practical models, and optimization pathways of wildlife damage compensation policies in China′s national parks

  • 摘要: 随着国家公园体制建设的推进与野生动物种群恢复, 人兽冲突问题日益凸显, 成为影响社区安全、生态保护与乡村振兴的重要议题。以中国第一批5个国家公园所涉及的部分省份为研究对象, 基于多中心治理理论构建治理主体、治理机制、治理绩效三维分析框架, 系统梳理其野生动物致害补偿政策的演进轨迹与实践模式。研究发现: 当前补偿政策正经历从单中心行政主导向多中心协同治理的制度转型, 形成了政府直接补偿、市场参与型补偿及社区共治型补偿三种典型模式。三种模式并非简单替代关系, 而是治理结构演进不同阶段的制度映射。然而, 政策实施中仍存在补偿标准偏低、资金来源单一、居民参与不足、程序效率不高等问题, 其深层根源在于治理结构单一性与多元主体协同机制的缺失。为此, 提出构建多元化且可持续的系统性补偿机制, 推动政策从事后救济向全过程治理转型, 以期为完善国家公园人兽冲突治理体系, 促进生态保护与社区协同发展提供理论参考与实践指引。

     

    Abstract: As the construction of China′s national park system continues to advance and the populations of endangered wildlife steadily recover, the frequency and severity of human-wildlife conflicts have increased significantly. These conflicts have become a key issue constraining community safety, the achievement of ecological conservation goals, and the implementation of the rural revitalization strategy. Taking nine provinces involved in the first five national parks in China as the research area, a three-dimensional analytical framework encompassing governance subjects, governance mechanisms, and governance performance was constructed based on polycentric governance theory. Using this framework, the evolution trajectory and practical implementation models of wildlife damage compensation policies in the region were systematically analyzed. The research reveals that current damage compensation policies are undergoing a fundamental institutional transition from a single-center and administrative-led model toward a polycentric collaborative governance model. During this transition, three typical models have emerged. First, the direct government compensation model is characterized by top-down administrative allocation and standardized procedures. Second, the market participation compensation model utilizes commercial tools such as wildlife damage insurance to diversify funding sources and share risks. Third, the community co-governance compensation model emphasizes the active role of local communities in damage assessment, monitoring, and the design of compensation mechanisms. Notably, these three models do not represent a simple linear substitution. They correspond to different institutional forms at different stages of governance development. More specifically, they reflect a gradient of increasing diversity in participating actors and growing complexity in the institutional system. Although some progress has been made in policy practice, many prominent challenges remain. These include generally low compensation standards with significant regional disparities, overreliance on fiscal funding and consequent supply pressures, a lack of substantive community participation mechanisms, and inefficient claims processes that lead to delayed payments and erode public trust. The root cause of these difficulties lies in the structural singularity of existing governance arrangements and the absence of effective coordination mechanisms among diverse stakeholders. To address these institutional challenges, this paper advocates for the construction of a diversified and sustainable systematic compensation mechanism, as well as a strategic shift in policy orientation from passive post-damage relief to proactive and full-process management. This transformation encompasses three core dimensions. First, a diversified funding system combining fiscal budgets, insurance premiums, and ecological compensation funds should be established. Second, multi-stakeholder coordination mechanisms need to be improved, with clearly defined rights and responsibilities for each participant. Third, community rights and participation channels should be embedded into policy design to enhance procedural fairness and implementation efficiency. With the overarching goal of achieving synergies between ecological protection and the sustainable development of surrounding communities, this study offers theoretical insights for the evolution of compensation governance systems through a comprehensive analytical perspective, and provides practical guidance for improving human-wildlife conflict governance in national parks.

     

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