自然保护地体系中“以国家公园为主体”的规范内涵与立法进路--兼论自然保护地体系构造问题

Legal Idea and Legislative Approach of"National Park as the Main Body"in the Protected Area System:On the Structure of Protected Areas

建立以国家公园为主体的自然保护地体系是我国社会主义生态文明建设的重大战略部署。党的十九大报告指出,建立中国特色的自然保护地体系要以国家公园为主体,但对国家公园主体性地位的现实原因和规范内涵却语焉不详。通过对自然保护地体系发展过程中主体类型的构造进行检视发现,原有的以自然保护区为主体的自然保护地体系存在管理体制低效以及规范体系繁冗等问题,故而,在转变自然保护地分类标准的基础上澄清"以国家公园为主体"的规范内涵具有重要的现实意义。国家公园之于自然保护地体系的主体性地位体现了其具有生态价值和保护目标的首要性,同时意味着自然保护地体系主体观和划分标准的转变。依循这一认识,需要通过严格保护与差别利用相结合、综合立法与专门立法相统一、静态指导与动态调整相协调的立法进路,对"以国家公园为主体"的自然保护地法律体系建设作出相应的制度安排。

The establishment of the protected area which takes the national park as its main body is a major strategic deployment of the ecological civiEzation construction in China.The report of the 19th Committee of the Communist Party of China pointed out that the establishment of the protected area with Chinese characteristics should take the national park as its main body,but the substantive reasons and normative connotations of it are unknown.By rethinking the structure of the main body type in the development of the protected area,the original protected area which takes the nature reserve as the main body has problems such as inefficient management and complicated legal system.So it is important to clarify the legal idea of"nation park as the main body"on the basis of reforming the taxonomy of protected area.The main position of the national park in the protected area is reflected in its primacy of ecological value and protection objectives,and it also means the transformation of the subjective view and classification of protected area.By taking the national park as the main body,the legal system of protected area should manage the relations between strict protection and differential exploitation,the fundamental law and special law,the static guidance and dynamic adjustment.