我国自然保护地历史遗留问题的系统解决方案

doi:10.17520/biods.2020318

摘要/Abstract

摘要：

近年来, 我国自然保护地内存在的大量的人口密集区域、民生设施、矿业活动、开发建设项目、农牧业生产活动等历史遗留问题在中央环保督察中集中暴露出来。为采取针对性政策措施解决这些遗留问题, 本研究首先将其分为三大类: (1)保护越位与保护空缺并存; (2)生态保护和大量原住居民生计改善间的矛盾突出; (3)保护地内存在大量生产经营活动。在此基础上, 深入剖析了各类遗留问题产生的体制机制原因。为合理化解历史遗留问题导致的一系列矛盾, 提高保护地建设和管理质量, 本文从加强保护地体系的顶层设计、推动相关法律法规的制修订、采取多元化手段解决保护地内土地权属和矿业权问题、建立健全平衡保护与发展关系的体制机制等4个方面提出了历史遗留问题的系统性解决方案。

关键词: 自然保护地, 历史遗留问题, 产生原因, 系统性解决方案

Abstract

Recently, the Chinese central government identified key problems in their history that has resulted in poor care for naturally protected areas. Some examples of these problems include having densely populated areas, community livelihood facilities, mining activity, and construction projects occurring in these naturally protected areas. In an attempt at finding solutions to these problems, we first classify these problems into three major categories: (1) both of overprotection and protection gap is existing; (2) conflict between conservation efforts and improving the livelihood of residents living near or in protected areas; (3) a great deal of business activity in protected areas. This study then describes an in-depth analysis on the institutional reasons for each category of historical problems. Finally, in order to rationally resolve these problems and improve the quality of protected area construction and management this study proposes the following systematic solutions from four aspects: (1) strengthening the top-level design of planning and construction of China’s protected areas; (2) formulating and revising relevant laws and regulations for protected areas; (3) taking measures to resolve problems dealing with land tenure and mining rights in protected areas; (4) establishing institutional mechanisms to balance both conservation and development of protected areas.

Key words: natural protected area, problems left over by history, institutional reason, system solution

黄宝荣, 张丛林, 邓冉 (2020) 我国自然保护地历史遗留问题的系统解决方案. 生物多样性, 28, 1255-1265. DOI: 10.17520/biods.2020318.

Baorong Huang, Conglin Zhang, Ran Deng (2020) The systemic solution to historical problems in China’s natural protected areas. Biodiversity Science, 28, 1255-1265. DOI: 10.17520/biods.2020318.

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链接本文: https://www.biodiversity-science.net/CN/10.17520/biods.2020318

https://www.biodiversity-science.net/CN/Y2020/V28/I10/1255

图/表 3

参考文献 41

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权属类型 Types of land ownership	国家公园、国家级自然保护区 National parks, national nature reserves		省级以下自然保护区、各级各类自然公园 Provincial and municipal nature reserves, various types of natural parks
权属类型 Types of land ownership	核心保护区 Core protected area	一般控制区 General control area
全民所有(未被承包经营, 但管理权归属于其他部门) Ownership by the whole people (it is not contracted for operation, but the management right belongs to other departments)	将管理权从其他部门划拨给保护地管理机构 Transferring management authority from other departments to protected area management agencies	将土地管理权从其他部门划拨给保护地管理机构 Transferring land management rights from other departments to protected area management agencies	与其他部门建立共管机制 Establishing co-management mechanism with other departments
全民所有(被单位或者个人承包经营) Ownership by the whole people (contracted for operation by units or individuals)	买断承包经营权, 使用权和管理权划归保护地管理机构 Buying out the contracted management right, right of use and management belongs to protected area management agencies	承包经营权到期之前, 通过流转获取土地管理权; 承包经营权到期后, 不再续签 Acquiring the land management right by transferring before the contract management right expires; no longer to renew after the contract management right expires	通过流转获取土地管理权 Acquiring the land management right by transferring
集体所有 Collective ownership	通过征收、置换等方式, 获取土地所有权 Acquiring land ownership by the ways of collection and replacement	a. 通过流转, 获取土地管理权; b. 通过地役权协议, 不获取土地使用权, 但限制土地利用方式 a. Acquiring the land management right by transferring; b. Don’t acquire land use rights, but restrict land-use type by easement agreement	a. 通过地役权协议, 不获取土地使用权, 但限制土地利用方式; b. 实施协议保护, 土地管理权交由公益组织或社区; c. 通过共管协议, 促进土地可持续利用 a. Don’t acquire land use rights, but restrict land-use type by easement agreement; b. Implementing protocol protection, the right of manage land is taken by public interest organizations or communities; c. Promoting sustainable land use by condominium agreement

权属类型 Types of land ownership	国家公园、国家级自然保护区 National parks, national nature reserves		省级以下自然保护区、各级各类自然公园 Provincial and municipal nature reserves, various types of natural parks
权属类型 Types of land ownership	核心保护区 Core protected area	一般控制区 General control area
全民所有(未被承包经营, 但管理权归属于其他部门) Ownership by the whole people (it is not contracted for operation, but the management right belongs to other departments)	将管理权从其他部门划拨给保护地管理机构 Transferring management authority from other departments to protected area management agencies	将土地管理权从其他部门划拨给保护地管理机构 Transferring land management rights from other departments to protected area management agencies	与其他部门建立共管机制 Establishing co-management mechanism with other departments
全民所有(被单位或者个人承包经营) Ownership by the whole people (contracted for operation by units or individuals)	买断承包经营权, 使用权和管理权划归保护地管理机构 Buying out the contracted management right, right of use and management belongs to protected area management agencies	承包经营权到期之前, 通过流转获取土地管理权; 承包经营权到期后, 不再续签 Acquiring the land management right by transferring before the contract management right expires; no longer to renew after the contract management right expires	通过流转获取土地管理权 Acquiring the land management right by transferring
集体所有 Collective ownership	通过征收、置换等方式, 获取土地所有权 Acquiring land ownership by the ways of collection and replacement	a. 通过流转, 获取土地管理权; b. 通过地役权协议, 不获取土地使用权, 但限制土地利用方式 a. Acquiring the land management right by transferring; b. Don’t acquire land use rights, but restrict land-use type by easement agreement	a. 通过地役权协议, 不获取土地使用权, 但限制土地利用方式; b. 实施协议保护, 土地管理权交由公益组织或社区; c. 通过共管协议, 促进土地可持续利用 a. Don’t acquire land use rights, but restrict land-use type by easement agreement; b. Implementing protocol protection, the right of manage land is taken by public interest organizations or communities; c. Promoting sustainable land use by condominium agreement

权属类型 Types of land ownership	国家公园、国家级自然保护区 National parks, national nature reserves		省级以下自然保护区、各级各类自然公园 Provincial and municipal nature reserves and various types of natural parks
权属类型 Types of land ownership	核心保护区 Core protected area	一般控制区 General control area
采矿权 Mining rights	推动所有采矿权全部退出 Promoting to quit all mining rights	a. 建立采矿活动正面清单, 推动正面清单之外所有采矿权的全面退出; b. 正面清单内的采矿权, 推动绿色矿山建设 a. Establishing positive lists of mining activities, promoting the exit of all mining rights except the positive list; b. Focusing on building green mines in positive lists of mining right	a. 重点推动绿色矿山建设; b. 建立采矿活动负面清单, 推动清单中所有采矿权的退出 a. Focusing on building green mines; b. Establishing a negative list of mining activities and promoting the exit of all mining rights in the list
探矿权 Exploration rights	保留少数关系到国家战略安全的矿产资源的探矿权, 推动其余探矿权的全部退出 Reserving the exploration right of a few mineral resources that concern national strategic security and promoting the exit of all the other exploration rights	建立探矿活动负面清单, 推动负面清单中所有探矿权的全面退出 Establishing a negative list of exploration activities and promoting the exit of all exploration rights in the negative list	规范探矿活动, 减轻其生态环境影响 Regulating prospecting activities and alleviating its ecological environmental impact

权属类型 Types of land ownership	国家公园、国家级自然保护区 National parks, national nature reserves		省级以下自然保护区、各级各类自然公园 Provincial and municipal nature reserves and various types of natural parks
权属类型 Types of land ownership	核心保护区 Core protected area	一般控制区 General control area
采矿权 Mining rights	推动所有采矿权全部退出 Promoting to quit all mining rights	a. 建立采矿活动正面清单, 推动正面清单之外所有采矿权的全面退出; b. 正面清单内的采矿权, 推动绿色矿山建设 a. Establishing positive lists of mining activities, promoting the exit of all mining rights except the positive list; b. Focusing on building green mines in positive lists of mining right	a. 重点推动绿色矿山建设; b. 建立采矿活动负面清单, 推动清单中所有采矿权的退出 a. Focusing on building green mines; b. Establishing a negative list of mining activities and promoting the exit of all mining rights in the list
探矿权 Exploration rights	保留少数关系到国家战略安全的矿产资源的探矿权, 推动其余探矿权的全部退出 Reserving the exploration right of a few mineral resources that concern national strategic security and promoting the exit of all the other exploration rights	建立探矿活动负面清单, 推动负面清单中所有探矿权的全面退出 Establishing a negative list of exploration activities and promoting the exit of all exploration rights in the negative list	规范探矿活动, 减轻其生态环境影响 Regulating prospecting activities and alleviating its ecological environmental impact