基于保护地役权制度的自然保护地“人、地约束”破解方案研究

Solutions to conflict between people and land in Natural Protected Areas Through Conservation Easement

约占国土面积1/5的自然保护地是生态建设的核心载体,但“人、地约束”导致自然保护地普遍存在统一管理难、资金供给难和科学管控难等问题。在分析中国自然保护地面临的人地约束问题及其成因的基础上,提出通过构建基于细化保护需求的保护地役权制度,分析了保护地役权与征收、租赁等常用土地管理方式的区别,介绍了国家公园体制试点背景下中国保护地役权的改革探索案例。保护地役权制度中,细化保护需求体现了自然生态系统的最严格保护;地役权合同中的保护一致性谱、地役权人的多元性和地役权补偿资金来源的多样性等体现了原住民和非政府组织等社会力量在保护地管理中共建共治共享的角色。将“人、地约束”初步转化为人与自然和谐共生的制度亟待纳入《国家公园法》等法律法规,以真正发挥作用。

Natural protected areas account for about 1/5 of the land in our country and play a key role in construction of ecological civilization.However,conflict between people and land in these areas makes it difficult to carry out highly effective management due to the complicated land ownership,shortage of funds and scientific research.Based on the analysis of the problem of man land constraint faced by nature reserves in China and its causes,this study suggests the conservation easement(CE)system based on itemized conservation requirements maybe useful.We analyzed the differences between conservation easement and the land expropriation or land lease that are traditional ways to solve the constraint,introduced the practice case of CE system in National Park pilots,and suggested the problems faced in the construction of the CE system and the construction mode under the current legal system.In the CE system,itemized conservation requirements reflects the most strict protection of natural ecosystem.The consistence spectrum of protection,the diversity of the grantee and the diversity of easement compensation funding sources in easement contracts reflect the role of social forces such as indigenous people and non-governmental organizations(NGO)in the collaboration,co-governance and sharing of protected area management.However,it should be accepted by national park act which is legislating can play the indispensable role of transforming conflict between people and land to harmonious co-existence between human and nature.