克服政治公地悲剧:祁连山生态问题的行政法思考

Overcoming Tragedy of Political Commons: Thinking over Administrative Law of Ecological Problem in Qilian Mountain

政治公地悲剧意指,自然资源国家/公共所有前提下,管理资源的政府(官员)因被既得利益者所俘获,做出违法管理决策,致使资源的国家所有在本质上蜕变成政府(官员)与既得利益者"私有",造成资源严重破坏。由于甘肃祁连山国家级自然保护区内违法开发和利用矿产资源、水电设施违法违规建设和运行,以及周边企业偷排偷放等问题突出,祁连山生态问题属于典型的政治公地悲剧。祁连山生态陷入政治公地悲剧的根本原因是,在多层级委托-代理关系中,除了中央政府之外,其他委托方或者代理方具有掠夺式开发和利用保护区的强烈动机。行政法因应形式意义上政治公地悲剧的途径是,为保护区(国家公园)各方行动者设计可置信的激励与约束机制;因应实质意义上政治公地悲剧的途径则是,合理确认保护区(国家公园)自然资源的所有权,并为行动者合理配置保护区自然资源的产权。

The Tragedy of Political Commons means that under the premise of the state/public ownership of natural resources, the government （officials） who manage the resources make illegal management decisions because they are captured by vested interests, and the state ownership of resources degenerates into the ＂private ownership＂ of the government （officials） and vested inter ests in essence, causing serious damage to the resources. Due to the prominent problems such as illegal exploitation and utilization of mineral resources, illegal construction and operation of hy dropower facilities, and illegal drainage and release of surrounding enterprises in Qilian Mountain National Nature Reserve, Gansu Province, the ecological problems in Qilian Mountain are typical Tragedies of Political Commons. The fundamental reason for the tragedy of Qilian Mountains eco logical failing into the political Commons is that in the multi level principal agent relationship, other principals or agents, except the central government, have a strong motive to exploit and uti lize the reserve in a predatory way. The administrative law responds to the Tragedy of the Political Commons in the formal sense by designing credible incentive and restraint mechanisms for the ac tots of the nature reserves （national parks）; The way for administrative law to cope with the Tragedy of Political Commons in essence is to rationally affirm the ownership of natural resources in the nature reserves （national parks） and to rationally allocate the property rights of natural re sources in protected areas for actors.