自然保护地体系结构化的法治路径与规范要义

On the Legal Paths and Essences about Structuring Protected Area Systems

我国当前正全面推进自然保护地体制改革,目标是形成以国家公园为主体、自然保护区为基础、各类自然公园为补充的自然保护地体系。这要求将改革前分散设置、界限模糊、交叉重叠的多种类型的自然保护地,按照科学合理的标准进行整理与重构,形成分类合理、定位明确、界限清晰的自然保护地体系。自然保护地体系改革需要法律体系"立改废释"工作提供法治保障,亟待制定《自然保护地法》《国家公园法》和修改《自然保护区条例》等既有立法。这一法制改革的系统工程,必须以厘清自然保护地体系结构的法律定位为前提和基点,法律融贯理论下的法治进路需要通过明确法律概念内涵、确定基本原则及其价值位序、细化自然保护地分类标准实现外在规范的协调性,以贯彻自然保护地法律体系的内在价值统一性。

The reform goals of reconstructing the protected area system in China is to form a protected area system with national parks as the main body,nature reserves as the foundation and various natural parks as the supplement.In order to establish a protected area system with scientific classification,clear boundaries and explicit orientation,it is required to reorganize and reconstruct the various types of protected area that are scattered,blurred and overlapped before the reform.This reform needs the rule-of-law guarantee provided by the work of legislation,reform,abolishment,and interpretation of legal system.It is urgent to formulate the Law of Protected Areas and the National Parks Law,and to amend the existing legislations such as the Regulations of the People’s Republic of China on Nature Reserves.This systematic project of legal system reform must be based on clarifying the legal orientation of natural protected area system structure.The legal approaches include defining the reasonable position of special law in the legal system at the macro level and achieving the coherence of the legal system at the micro level.Specifically,the normative essentials of orientation of protected area system structure should be carried out from the following aspects:defining the connotation of core concepts,clarifying the basic principles and their value sequences,and refining the classification criterion of the protected areas.