生物多样性 ›› 2017, Vol. 25 ›› Issue (1): 80-87. DOI: 10.17520/biods.2016156
张婧雅, 张玉钧*
收稿日期:
2016-06-12
接受日期:
2016-10-06
出版日期:
2017-01-20
发布日期:
2017-02-08
通讯作者:
张玉钧
基金资助:
Jingya Zhang, Yujun Zhang*
Received:
2016-06-12
Accepted:
2016-10-06
Online:
2017-01-20
Published:
2017-02-08
Contact:
Zhang Yujun
摘要:
公众参与是一种提高公众积极性和主动权的新型管理策略, 应用于保护地管理已数十年, 迄今已贯穿于许多国家的国家公园管理环节中, 成为国家公园治理的必然趋势。我国现行的保护地管理体系实行属地管理, 其建设和管理在实际中多为政府行为, 鲜有的公众参与也多为非规范的、被动的。本文梳理并提炼了保护地管理中公众参与的起源、内涵及特征, 在借鉴国外保护地管理公众参与实践经验的基础上, 依照公众参与程度的高低, 将国家公园建设管理的公众参与途径分为信息反馈、咨询、协议与合作4个层次; 提出了我国国家公园的公众参与途径, 旨在为我国国家公园体制的建设管理提供参考。
张婧雅, 张玉钧 (2017) 论国家公园建设的公众参与. 生物多样性, 25, 80-87. DOI: 10.17520/biods.2016156.
Jingya Zhang, Yujun Zhang (2017) On public participation in the construction of national parks. Biodiversity Science, 25, 80-87. DOI: 10.17520/biods.2016156.
澳大利亚保护地* Australia’s Protected area* | 公众参与程度 Degree of public participation | ||
---|---|---|---|
操控 Manipulation | (政府)决断 Resolution | 通知 Inform | 低 Low 高 High |
治疗 Therapy | (政府)诉讼 Litigation | 咨询 Consult | |
告知 Informing | 调解、仲裁 Mediation | 合作 Collaborate | |
征询意见 Consultation | 与(政府)联合规划 Joint planning | 伙伴 Partner | |
安抚 Placation | 咨询 Consultation | 移交 Hand Over | |
合作关系 Partnership | 信息互通 Information | ||
契约授权 Delegated power | 教育 Education | ||
公众控制 Citizen control |
表1 公众参与的不同类别
Table 1 Different classes of public participation
澳大利亚保护地* Australia’s Protected area* | 公众参与程度 Degree of public participation | ||
---|---|---|---|
操控 Manipulation | (政府)决断 Resolution | 通知 Inform | 低 Low 高 High |
治疗 Therapy | (政府)诉讼 Litigation | 咨询 Consult | |
告知 Informing | 调解、仲裁 Mediation | 合作 Collaborate | |
征询意见 Consultation | 与(政府)联合规划 Joint planning | 伙伴 Partner | |
安抚 Placation | 咨询 Consultation | 移交 Hand Over | |
合作关系 Partnership | 信息互通 Information | ||
契约授权 Delegated power | 教育 Education | ||
公众控制 Citizen control |
类型 Type | 内容 Content | 主要参与主体 Main participants | 形式 Form | 备注 Remark | 公众参与程度 Degree of public participation |
---|---|---|---|---|---|
信息反馈 Information feedback | 政府将管理政策等信息通知公众 Govern- ment informs public | 公民、社会组织、企业、社区 Citizens, social organizations, enterprises and communities | 公众集会、新闻发布会、教育培训、公开出版物、网络等 Public meetings, press releases, education, publication and internet | 建立反馈制度, 包括问询、投诉、网页点击率等数量 Feedback system include the numbers of inquiry, complaint and internet hits | 低 Low 高 High |
咨询 Consult | 政府在决策制定时咨询公众 Government consults public for decision-making | 社区、社会组织 Communities, social organizations | 问卷访谈、利益相关者委员会、咨询会、工作组 Questionare surveys, stakeholder meetings, consultation and workshops | 确保利益相关者的多元化 Diversity of stakeholder | |
协议 Agreement | 政府在建设管理过程中雇佣、聘请公众 Government employs public | 企业、社区、社会组织、公民 Enterprises, communities, social organizations and citizens | 特许经营、协议保护、工作人员、专家聘请、第三方监督、志愿者 Franchise, conservation steward, staff, supervision and volunteer | 需构建协议期满后的评估制度 Evaluation scheme | |
合作 Partner | 政府与公众共同分享权责 Government and public (stakeholders) share responsibility | 社区、企业 Communities, enterprises | 委员会、工作组、社区共管、公私合营等 Committee, work shop, community co-manage- ment and PPP | 需依据共同目标和利益确定合作范围、明晰各方权责界限及产出 Outcomes and bound of rights and liabilities based on common aim and interests |
表2 我国国家公园的公众参与途径
Table 2 The approach of public participation in China’s national park
类型 Type | 内容 Content | 主要参与主体 Main participants | 形式 Form | 备注 Remark | 公众参与程度 Degree of public participation |
---|---|---|---|---|---|
信息反馈 Information feedback | 政府将管理政策等信息通知公众 Govern- ment informs public | 公民、社会组织、企业、社区 Citizens, social organizations, enterprises and communities | 公众集会、新闻发布会、教育培训、公开出版物、网络等 Public meetings, press releases, education, publication and internet | 建立反馈制度, 包括问询、投诉、网页点击率等数量 Feedback system include the numbers of inquiry, complaint and internet hits | 低 Low 高 High |
咨询 Consult | 政府在决策制定时咨询公众 Government consults public for decision-making | 社区、社会组织 Communities, social organizations | 问卷访谈、利益相关者委员会、咨询会、工作组 Questionare surveys, stakeholder meetings, consultation and workshops | 确保利益相关者的多元化 Diversity of stakeholder | |
协议 Agreement | 政府在建设管理过程中雇佣、聘请公众 Government employs public | 企业、社区、社会组织、公民 Enterprises, communities, social organizations and citizens | 特许经营、协议保护、工作人员、专家聘请、第三方监督、志愿者 Franchise, conservation steward, staff, supervision and volunteer | 需构建协议期满后的评估制度 Evaluation scheme | |
合作 Partner | 政府与公众共同分享权责 Government and public (stakeholders) share responsibility | 社区、企业 Communities, enterprises | 委员会、工作组、社区共管、公私合营等 Committee, work shop, community co-manage- ment and PPP | 需依据共同目标和利益确定合作范围、明晰各方权责界限及产出 Outcomes and bound of rights and liabilities based on common aim and interests |
1 | Agrawal A, Gibson C (1999) Enchantment and disenchantment: the role of community in natural resource conservation. World Development, 27, 629-649. |
2 | Arnstein SR (1969) A ladder of citizen participation. Journal of The American Planning Association, 35, 216-224. |
3 | Chambers R (2005) Participatory mapping and geographic information systems: whose map? Who empowered and who disempowered? Who gains and who loses? Electronic Journal on Information Systems in Developing Countries, 25(2), 1-11. |
4 | Connor DM (1988) A new ladder of citizen participation. National Civic Review, 77, 249-257. |
5 | Dietz T, Stern PC (1998) Science, values and biodiversity. BioScience, 48, 441-444. |
6 | Edralin JS (1997) The new local governance and capacity building: a strategic approach—examples from Africa, Asia, and Latin America. Regional Development Studies, 3, 109-149. |
7 | Eneji VCO, Gubo Q, Okpiliya FI, Aniah EJ, Eni DD, Afangide D (2009) Problems of public participation in biodiversity conservation: the Nigerian scenario. Impact Assessment and Project Appraisal, 27, 301-307. |
8 | Fiorino DJ (1990) Citizen participation and environmental risk: a survey of institutional mechanisms. Science, Technology, & Human Values, 15, 226-243. |
9 | Gaventa J, Valderrama C (1999) Participation, citizenship and local governance. Strengthening Participation in Local governance, 21, 1-16. |
10 | Keen M, Mahanty S (2006) Learning in sustainable natural resource management: challenges and opportunities in the Pacific. Society and Natural Resources, 19, 497-513. |
11 | Liu PF, Liang LK, Liu Y (2011) A comparative study on admission tickets price between national scenic resort in China and national park in the United States. Areal Research and Development, 30(5), 108-122. (in Chinese with English abstract) |
[刘鹏飞, 梁留科, 刘英 (2011) 中美国家风景名胜区门票价格比较研究. 地域研究与开发, 30(5), 108-122.] | |
12 | Liu XM, Bao JG (2005) Analysis on unqualified ecotourism practice: from the point of view of stakeholders. Chinese Journal of Ecology, 24, 348-353. (in Chinese with English abstract) |
[刘雪梅, 保继刚 (2005) 从利益相关者角度剖析国内外生态旅游实践的变形. 生态学杂志, 24, 348-353.] | |
13 | Lynch HJ, Hodge S, Albert C, Dunham M (2008) The Greater Yellowstone Ecosystem: challenges for regional ecosystem management. Environmental Management, 41, 820-833. |
14 | Mannigel E (2008) Integrating parks and people: how does participation work in protected area management? Society & Natural Resources, 21, 498-511. |
15 | Miao H, Ouyang ZY, Wang XK, Song M (2000) Management of communities in natural reserves: challenge and solution. In: Proceedings of the Fourth National Conference on the Conservation and Sustainable Use of Biodiversity in China (ed. Chen YY), pp. 37-50. China Forestry Publishing House, Beijing. (in Chinese with English abstract) |
[苗鸿, 欧阳志云, 王效科, 宋敏 (2000) 自然保护区的社区管理: 问题与对策. 见: 第四届全国生物多样性保护与持续利用研讨会论文集(陈宜瑜主编), pp. 37-50. 中国林业出版社, 北京.] | |
16 | Pan ZQ, Liang BE, Wu YH, Lin Y, Cao TT (2014) Community empowerment: an effective way to realize community’s involvement in tourism development. Tourism Forum, 7(6), 43-49. (in Chinese with English abstract) |
[潘植强, 梁保尔, 吴玉海, 林琰, 曹婷婷 (2014) 社区增权: 实现社区参与旅游发展的有效路径. 旅游论坛, 7(6), 43-49.] | |
17 | Parks & Wildlife Commission of the Northern Territory (2002) Public Participation in Protected Area Management, The Committee on National Parks and Protected Area Management, Benchmarking and Best Practice Program. |
18 | Schneider H (1999)Participatory Governance:The Missing Link for Poverty Reduction. OECD Publishing , Paris. |
19 | Seitz V (2001) A new model: participatory planning for sustainable community development. Race Poverty & the Environment, 8(1), 8-11, 38. |
20 | Selin SW, Chavez D (1995) Developing a collaborative model for environmental planning and management. Environmental Management, 18, 189-195. |
21 | Stringer LC, Dougill AJ, Fraser E, Hubacek K, Prell C, Reed MS (2010) Unpacking “participation” in the adaptive management of social-ecological systems: a critical review. Ecology and Society, 11, doi: 10.5751/ES-01896-110239. |
22 | The United Nations Development Programme (translated by Translating Group of Human Development Report 2003) (2003) Human Development Report 2003—Millennium Development Goals: A Compact Among Nations to End Human Poverty. China Financial and Economic Publishing House, Beijing. (in Chinese) |
[2003年人类发展报告翻译组(2003) 2003年人类发展报告——千年发展目标: 消除人类贫困的全球公约. 中国财政经济出版社, 北京.] | |
23 | Tuler S, Webler T (2000) Public participation: relevance and application in the national park service. Park Science, 20(1), 24-26. |
24 | WWF (1991) Local Participation in Environmental Assessment of Projects. Working paper No. 2, Washington, DC. |
25 | Xu SL (2003) The management system reform of China’s cultural and natural heritage. Management World, (6), 63-73. (in Chinese) |
[徐嵩龄 (2003) 中国文化与自然遗产的管理体制改革. 管理世界, (6), 63-73.] | |
26 | Zhang J, Chen SB, Chen B, Du YJ, Huang XL, Pan XB, Zhang Q (2013) Citizen science: integrating scientific research, ecological conservation and public participation. Biodiversity Science, 21, 738-749. (in Chinese with English abstract) |
[张健, 陈圣宾, 陈彬, 杜彦君, 黄晓磊, 潘绪斌, 张强 (2013) 公众科学: 整合科学研究、生态保护和公众参与. 生物多样性, 21, 738-749.] | |
27 | Zhang X (2005) Analysis on the institutional disadvantages of decentralized administration and management for world heritage and key national park in China. Chinese Landscape Architecture, 21(7), 9-16. (in Chinese with English abstract) |
[张晓 (2005) 世界遗产和国家重点风景名胜区分权化(属地)管理体制的制度缺陷. 中国园林, 21(7), 9-16.] | |
28 | Zhang YJ, Yin MF (2006) The latest development: a case of processes of forest policy formation by Kanagawa Prefecture. Environmental Science and Management, 31(9), 8-10. (in Chinese with English abstract) |
[张玉钧, 殷鸣放 (2006)日本森林管理的最新发展——以日本神奈川县林业政策过程为例. 环境科学与管理, 31(9), 8-10.] | |
29 | Zhang YJ, Zhang YY (2012) Protection of citizens-participating rural landscape: a case study of state-run Satoyama Park (or Kaisho Forest) in Japan. Chinese Journal of Eco-Agriculture, 20, 838-841. (in Chinese with English abstract) |
[张玉钧, 张英云 (2012) 市民参与型的乡村景观保护——以日本海上森林国营里山公园建设为例. 中国生态农业学报, 20, 838-841.] | |
30 | Zhang ZW, Yang R (2015) The public involvement mechanism of American national park management planning. Chinese Landscape Architecture, 31(2), 23-27. (in Chinese with English abstract) |
[张振威, 杨锐 (2015) 美国国家公园管理规划的公众参与制度. 中国园林, 31(2), 23-27.] |
[1] | 姜熠辉, 刘岳, 曾旭, 林喆滢, 王楠, 彭吉豪, 曹玲, 曾聪. 东海六个国家级海洋保护区鱼类多样性和连通性[J]. 生物多样性, 2024, 32(6): 24128-. |
[2] | 田瑜, 李俊生. 《昆明-蒙特利尔全球生物多样性框架》“3030”目标的内涵及实现路径分析[J]. 生物多样性, 2024, 32(6): 24086-. |
[3] | 鄢德奎. 中国生物多样性保护政策的共同要素、不足和优化建议[J]. 生物多样性, 2024, 32(5): 23293-. |
[4] | 杜宇晨, 刘蓓萌, 陈俊峰, 王浩, 谢屹. 基于结构方程模型的农户保护意愿影响因素分析: 以东北虎豹国家公园珲春片区为例[J]. 生物多样性, 2024, 32(1): 23155-. |
[5] | 耿云, 寇一祎, 范新卓, 徐姝瑶, 丛丽, 张玉钧. 基于卡诺模型的大熊猫国家公园自然教育需求研究[J]. 生物多样性, 2024, 32(1): 23101-. |
[6] | 崔国发. 关于自然保护地整合优化工作中几个关键问题的讨论与建议[J]. 生物多样性, 2023, 31(9): 22447-. |
[7] | 李世东. 中国和美国国家公园时空发展及驱动因素[J]. 生物多样性, 2023, 31(6): 23040-. |
[8] | 邓昶, 郝杰威, 高德, 任明迅, 张莉娜. 海南受威胁苔藓植物适生热点区域识别与保护[J]. 生物多样性, 2023, 31(4): 22580-. |
[9] | 龚心语, 黄宝荣. 国家公园全民公益性评估指标体系: 以青藏高原国家公园群为例[J]. 生物多样性, 2023, 31(3): 22571-. |
[10] | 陈天傲, 李想. 我国国家公园管理体系优化路径: 以中央层面为例[J]. 生物多样性, 2023, 31(3): 22485-. |
[11] | 杨预展, 余建平, 钱海源, 陈小南, 陈声文, 袁志林. 钱江源国家公园体制试点区水稻田土壤微生物群落的格局及其驱动机制[J]. 生物多样性, 2023, 31(2): 22392-. |
[12] | 林木青, 张应明, 欧阳芳, 束祖飞, 朱朝东, 肖治术. 广东车八岭国家级自然保护区独栖性胡蜂多样性空间分布特征及其对环境因子的响应[J]. 生物多样性, 2023, 31(2): 22310-. |
[13] | 金彦君, 赵龙辉, 覃远玉, 汪继超. 海南国家公园霸王岭片区无尾两栖类鸣声多样性: 基于自动录音技术[J]. 生物多样性, 2023, 31(1): 22360-. |
[14] | 孙翊斐, 王士政, 冯佳伟, 王天明. 东北虎豹国家公园森林声景的昼夜和季节变化[J]. 生物多样性, 2023, 31(1): 22523-. |
[15] | 马子驭, 何再新, 王一晴, 宋大昭, 夏凡, 崔士明, 苏红信, 邓建林, 李平, 李晟. 中国云豹种群分布现状与关键栖息地信息更新[J]. 生物多样性, 2022, 30(9): 22349-. |
阅读次数 | ||||||
全文 |
|
|||||
摘要 |
|
|||||
备案号:京ICP备16067583号-7
Copyright © 2022 版权所有 《生物多样性》编辑部
地址: 北京香山南辛村20号, 邮编:100093
电话: 010-62836137, 62836665 E-mail: biodiversity@ibcas.ac.cn