中国森林公园近40年发展的嬗变逻辑与实践启示

doi:10.11707/j.1001-7488.20220115

摘要/Abstract

摘要：

目的: 研究中国森林公园近40年发展嬗变的历程、路径和动因, 从中总结实践启示, 为森林公园的发展提供历史借鉴和理论参考。方法: 借助文献分析法、历史研究法、综合分析法, 将森林公园的发展纳入中国社会经济发展的宏观背景中进行分析, 在国家与林业发展战略转型及森林公园价值转向的多重路径中划分森林公园的发展阶段; 并结合森林公园数量变化、建设资金来源结构、职工工资收入水平等量化分析, 总结归纳森林公园发展嬗变的内在逻辑。结果: 1) 近40年中国森林公园经历了"林业多种经营项目(1982—1991年)—林业第三产业(1992—1997年)—多维度发展的林业绿色产业(1998—2010年)—自然保护地和社会公共事业(2011年至今)"的嬗变历程。2)中国森林公园近40年的嬗变路径可以归纳为: "旅游目的地—自然保护地"的属性变迁; "经济产业—社会公共事业"的功能演变; "逐利—逐绿—逐义"的价值转向; "封闭—开放—融合"的格局转化。结论: 1) 中国森林公园近40年发展嬗变的主要动因可以归结为: 追求社会公正的变革、实现生态可持续的愿景和"好生活"图景。2)中国森林公园依然面临政府主导地位缺失带来的管理复杂化、与国有林场"两位一体"管理体制的掣肘、管理者与经营者角色错位催生的多重矛盾、国有林场改革及自然保护地体系建设带来的新变局、相关法律缺位带来的行业管理效力受限等问题。3)积极对接"以国家公园为主体的自然保护地体系"的建设、逐步建立以公共财政投入为主的多元化资金保障制度、协调与国有林场"两位一体"的管理体制、推进管理权和经营权分离、完善森林公园的法律体系, 将是今后森林公园管理工作的方向和发力点。

关键词: 森林公园, 历时发展, 嬗变逻辑, 实践启示

Abstract:

Objective: This study presents an analysis of history, paths and driving forces of the development of forest parks in China in the past 40 years and a summary of practical implications in order to provide historical evidences and a theoretical basis for the development of forest parks. Method: In combination of literature analysis, history study and comprehensive analysis, the development of forest parks was integrated into the macro context of China's social economic development, the development stages of forest parks were identified in the context of strategic transition of both national and forestry sectoral development, and evolution of forest parks. Combining quantitative analysis of the changes in the number of forest parks, sources of construction investment, and average wages of employees, the internal logic of the development of forest parks was summarized. Result: 1) In the past 40 years, forest parks in China have gone through four stages: "diversification projects of forestry operation" (1982—1991), "the third industry of forestry"(1992—1997), "multi-dimensional development of green forestry industry" (1998—2010), and "protected natural areas and social public services" (2011—present). 2) The evolutionary path of forest parks in China in the past 40 years can be summarized as follows: property change from "tourist destination" to "protected natural areas", function change from "economic industry" to "social public services", value change from "for economic benefits" to "for green" to "for responsibility" and model change from "closed" to "open" to "integration". Conclusion: 1) The main reasons for the evolution of forest parks in China in the past 40 years can be attributed to the revolution for social justice, the vision for ecological sustainability and expectation of "good life". 2) Forest parks in China have the following problems: the management failure caused by lack of government leadership, restrictions by the "two-in-one" management system of state-owned forest farms, the misalignment of the roles of managers and operators, the new changes brought about by "reform of the state-owned forest farms" and "development of protected natural areas system", and the absence of relevant laws. 3) In the future, the management work of forest parks in China will be focused on: harmonization with "development of protected areas system with the mainstay of national parks", gradually establishing a diversified financing system with public financial support as the mainstay, harmonizing the "two in one" management system of state-owned forest farms, promoting the separation of management rights and operation rights, and improving legal system relevant to forest parks.

Key words: forest parks, diachronic development, logic of evolution, practical enlightenment

中图分类号:

王娜,陈鑫峰,钟永德. 中国森林公园近40年发展的嬗变逻辑与实践启示[J]. 林业科学, 2022, 58(1): 138-150.

Na Wang,Xinfeng Chen,Yongde Zhong. Evolutionary Logic and Practical Enlightenment of the Development of Forest Parks in China in the Past 40 Years[J]. Scientia Silvae Sinicae, 2022, 58(1): 138-150.

图/表 5

表1

1982年以来中国森林公园的历时发展特征"

发展历程 Development course	阶段划分标志性事件 Signature event of the phase division	建设模式 Construction mode	管理模式 Management mode	性质及功能定位 Positioning of nature and function	管理导向 Management orientation	产品特征 Product features
林业多种经营项目时期 The stage of “diversification projects of forestry operation” (1982—1991)	1982年张家界国家森林公园创立 Zhangjiajie National Forest Park was established in 1982	从“国家投入为主”逐渐转化为“自筹为主的多方参与” From “mainly based on state investment” to “mainly based on self-financing”	与国有林场“两块牌子，一套人马”的管理模式 “Two-in-one” management model	性质：林业多种经营项目；功能：以园养林，活跃林场经济，发展林业，积累资金 Nature: diversification project of forestry; Function: prepay forestry and accumulate funds	经济效益优先 Economic benefit first	泛景区化 Pan-scenic spot building
林业第三产业时期 The stage of “the third industry of forestry” (1992—1997)	1992年国务院发布《关于加快发展第三产业的决定》；1992年林业部发布《关于加快森林公园建设的决定》 The “Decision on Accelerating the Development of the Tertiary Industry” was released in 1992; The “Decision on Speeding up the Construction of Forest Parks” was released in 1992	自筹为主，多方参与，共同受益 Self-financing mainly, multi-party participation, sharing the profits	与国有林场“两块牌子，一套人马”的管理模式 “Two-in-one” management model	性质：林业第三产业、旅游产业；功能：调整林业产业结构，振兴林业经济，扩大就业门路，安置和消化林业部门富余劳动力 Nature: tertiary industry of forestry, tourism industry; Function: adjust the forestry industry structure, revitalize the forestry economy, and expand employment channels	经济效益优先 Economic benefit first	泛景区化、泛城市化、“商品”属性明显 Pan-scenic spot building, pan- urbanization, distinct and obvious “commodity” attribute
多维度发展的林业绿色产业时期The stage of “multi- dimensional development of green forestry industry” (1998—2010)	1998年洪涝灾害和天然林资源保护工程的实施；2003年国务院发布《关于加快林业发展的决定》；2006年国家林业局发布《关于加快森林公园发展的意见》 The “Natural Forest Protection Project” was implemented, driven by floods in 1998; The “Decision on Accelerating the Development of Forestry” was released in 2003; The “Opinions on Accelerating the Development of Forest Parks” was released in 2006	自筹资金和招商引资为主，政府专项资金为辅 Self-raised funds and investment attraction were the mainstays, supplemented by special government funds	与国有林场“两块牌子，一套人马”的管理模式 “Two-in-one” management model	性质：自然保护事业的重要组成部分和林业向社会提供多种生态产品和服务的重要形式；功能：保护自然、推进产业发展、弘扬生态文化 Nature: important part of nature conservation and important form in which forestry provides a variety of ecological products and services to society; Function: protect nature, promote industrial development, and promote ecological culture	经济效益优先，生态和社会效益兼顾 Give priority to economic benefits, taking into account both ecological and social benefits	产品对森林公园的资源特色有了较好的表达 The product had a better expression of the resource characteristics of the forest park
自然保护地和社会公共事业时期 The stage of “protected natural areas and social public services” (2011—)	2011年国务院发布的《国家主体功能区规划》将森林公园列为禁止开发区域；2012年党的十八大做出“大力推进生态文明建设”的战略决策；2015—2019年国有林场改革 The “National Major Function Zone Planning” listed forest parks as prohibited development areas in 2011; The ecological civilization construction strategy was implemented in 2012; The reform of state- owned forest farms was implemented from 2015 to 2019	自筹资金和招商引资为主，政府专项资金为辅 Self-raised funds and investment attraction were the mainstays, supplemented by special government funds	与国有林场“两块牌子，一套人马”的管理模式 “Two-in-one” management model	性质：自然保护地和社会公共事业；功能：保护森林风景资源和生物多样性、普及生态文化知识、开展森林生态旅游 Nature: nature reserve and social public utilities; Function: protect forest landscape resources and biodiversity, popularize ecological and cultural knowledge, and develop forest eco-tourism	生态效益和社会效益优先，经济效益兼顾 Give priority to ecological and social benefits, taking into account economic benefits	产品内涵得到不断创新与发展 Product connotation had been innovated and developed

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