生物多样性 ›› 2025, Vol. 33 ›› Issue (3): 24570-0.  DOI: 10.17520/biods.2024570  cstr: 32101.14.biods.2024570

• 昆蒙框架如何在中国体制下成为主流工作目标专题 • 上一篇    下一篇

国家公园与国土空间规划和用途管制制度衔接路径探讨

苏红巧1, 余得光2, 牟昆仑3*   

  1. 1. 国务院发展研究中心管理世界杂志社, 北京 100026; 2. 北京交通大学, 北京 100044; 3. 台州市生态环境局仙居分局, 浙江台州 317399
  • 收稿日期:2024-12-19 修回日期:2025-03-04 出版日期:2025-03-20 发布日期:2025-03-06
  • 通讯作者: 牟昆仑

Discussion on the integration path between national parks and territorial space planning and utilization regulation system

Hongqiao Su1, Deguang Yu2, Kunlun Mou3*   

  1. 1 Journal of Management World, Development Research Center of the State Council, Beijing 100026, China 

    2 Beijing Jiaotong University, Beijing 100044, China 

    3 Xianju Branch of Taizhou Ecological Environment Bureau, Taizhou, Zhejiang 317399, China

  • Received:2024-12-19 Revised:2025-03-04 Online:2025-03-20 Published:2025-03-06
  • Contact: Kunlun Mou

摘要: 土地/海洋用途改变是导致全球生物多样性丧失最大的直接驱动因素, 《昆明-蒙特利尔全球生物多样性框架》行动目标1提出通过覆盖全域的空间规划确保重要生态区域零丧失。党的二十届三中全会提出的“建立健全覆盖全域全类型、统一衔接的国土空间用途管制和规划许可制度”为行动目标1的落实提供了最佳机遇。国家公园作为生物多样性保护的重要国土空间, 其体制改革必须与国土空间规划和用途管制制度充分衔接, 才能有效支撑这一类型国土空间——生态空间的有效保护。但是国家公园体制改革顶层设计中, 整体上缺少与这两项制度衔接的相关内容, 实践中也出现了不少的冲突矛盾。建议将国家公园规划体系与五级三类国土空间规划体系充分衔接作为国家公园空间管制依据; 根据改革难易程度, 分阶段推进由国家公园管理机构间接或直接统一行使用途管制权; 建立基于空间分区的差异化、精细化用途管制体系。

关键词: 昆明-蒙特利尔全球生物多样性框架, 国家公园, 国土空间规划, 国土空间用途管制

Abstract

Background & Aims: Land/ocean use change represents the foremost direct driver of global biodiversity loss. Target 1 of the Kunming-Montreal Global Biodiversity Framework advocates for zero loss of critical ecological regions through comprehensive spatial planning encompassing all areas. The proposal of “establishing and improving a unified and coordinated system for land and space use control and planning permission covering all regions and all types” put forward at the Third Plenary Session of the 20th Central Committee of the Communist Party of China provides the best opportunity for implementing Target 1. 

Challenges: As national parks constitute territorial spaces for biological conservation, their institutional reforms must be thoroughly connected with the territorial space planning and utilization regulation frameworks to efficaciously underpin the conservation of such ecological spaces. Nonetheless, current top-level designs for national park reforms lack explicit integration with these two systems, leading to practical contradictions. 

Recommendations: It is suggested to fully connect the national park planning system with the five-tiered, three-category territorial space planning hierarchy to serve as the basis for spatial regulation within national parks; to advance the phased implementation of unified utilization control rights, either indirectly or directly exercised by national park management authorities, in accordance with the complexity of reforms; and to develop a differentiated and nuanced utilization control system grounded in spatial zoning.

Key words: Kunming-Montreal Global Biodiversity Framework, national park, territorial space planning, territorial space use regulation