生态保护红线在环境法律制度中的融合与创新

Integration and Innovation of Ecological Protection Red Line in Environmental Legal System

自2011年《国务院关于加强环境保护重点工作的意见》首次在国家性文件中提出生态保护红线的概念,生态保护红线引起了社会的广泛关注。从2014年被写入新修改的《环境保护法》到2017年中共十九大报告再次确认,生态保护红线被推向高潮。它作为新观念新制度,从环境政策转向具体法律制度必须向环保法提出更新的内在需求。生态保护红线对传统环境法律理念提出挑战与革新,它并没有遵循以往以单一环境要素为核心进行制度设计,而是以生态空间整体性和生态系统的完整性作为内在基点进行制度构架。因此,在推行过程中出现生态保护红线与环境法律制度之间的融合问题,亟待解决。两者耦合基础与方法:共同原则——风险预防原则,共同实施标准——生态承载力,前期基础——耕地红线;生态保护红线具体以系统规划方法融入到环保法当中。另外,生态保护红线与环境法律制度的融合主要体现在对生态保护红线的治理选择方面,治理的选择不仅影响红线的具体落实措施,还决定了其与环保法体系的匹配程度。它的具体措施可分为两个维度:治理的质量(如何治理)和治理的主体类型(谁治理)。这两个维度应用于中国生态保护红线的管治方面可进一步转换为善治与谁治理越线责任问题(即谁拥有决策权力与承担责任的问题)。

Since 2011,“the State Council on strengthening the focus of environmental protection view”put forward the concept of red line of ecological protection in national documents for the first time,ecological protection red line has caused widespread concern in society.It is from 2014 to write the newly revised“Environmental Protection Law”to the 19th report of the CPC Central Committee once again clearly confirmed,after that,the red line of ecological protection is to a climax.As a new concept and new system,from the environmental policy to the concrete legal system,it must put forward the renewed intrinsic demand to the environmental protection law.The ecological protection of red line challenged and reformed traditional environmental legal concepts,it did not follow the previous institutional design with a single environmental element as its core.Instead,it adopted an institutional framework based on the integrity of ecological space and the integrity of the ecosystem.Therefore,the integration of the red line of ecological protection and the environmental legal system during the implementation process urgently needs to be resolved.The basis and method of the two coupling:common principle is principle of risk prevention,common implementation of standards is ecological carrying capacity,the foundation of the previous period is cultivated land red line.The red lines of ecological protection are systematically integrated into the environmental legal system through systematic planning.In addition,the integration of the ecological protection red line and the environmental legal system is mainly reflected in the selection of ecological red line governance.The choice of governance not only affects the concrete implementation of the red line,but also determines the degree of matching with the environmental legal system.Its concrete measures can be divided into two dimensions:the quality of governance(how to govern)and the type of governance(who govern).These two dimensions can be further applied to the governance of ecological red lines in China and can be further transformed into the problem of good governance and who governs the ecological red line(ie,who owns the power of decision-making and responsibility).