自然保护地立法的体系化:问题识别、逻辑建构和实现路径

Legislative Systematization of Protected Areas: Problems,Options,and Approach

建立中国特色国家公园体制以及以国家公园为主体的自然保护地体系是中共十八届三中全会提出的重点改革任务,而推进自然保护地立法体系化是2019年《关于建立以国家公园为主体的自然保护地体系的指导意见》中的明确要求。自然保护地作为国家履行环境保护义务而运用区划工具进行管理的一种公物,其体系化建设是实现改革目标的要求。立法的体系化不仅是达到保护目标的现实需求,而且也是法律体系化在自然保护地领域的有效延伸。自然保护地立法的体系化包括形式意义的体系化(即结构的体系化)和实质意义的体系化(即功能的体系化)。结构的体系化是指通过立改废释等方式,构建全面完整的自然保护地立法框架;功能的体系化是指将各项法律功能分配给相应的法律法规,该功能的实现需要在自然保护地内部法律法规之间进行合理配置,也需要与外部相关法律之间形成有效衔接。唯此,自然保护地立法的体系化才能推动以国家公园为主体的自然保护地体系和中国特色国家公园体制的建成。

The establishment of national park system with Chinese characteristic and protected area system with national park as the main body is the key task proposed by the Third Plenary Session of the 18th CPC Central Committee,and the Guidance on Establishing a System of Protected Areas with Natural Park as the Main Body requires clearly to form a legislative system of protected areas. Protected areas are managed as a zoning tool to fulfill the obligation of environmental protection,its systematic construction is the requirement to achieve the reform goal. The systematization of legislation is not only the realistic demand for achieving the political goal,but also an effective extension of the legal system in the field of protected areas. The systematization of legislation of protected areas including two aspects: formal meaning( structure) and substantive meaning( function). The systematization of structure refers to construct a comprehensive and complete legislative framework for protected areas by means of formulating,reforming,abolishing and explaining. The systematization of functions refers to the allocation of various functions to the corresponding laws and regulations. The realization of function requires not only reasonable allocation of internal laws,but also effective connection with relevant external laws. Only by this way,the legislative systematization of protected areas can promote the establish of the system of protected areas and natural park.