生态空间管控的立法模式与制度体系

Legislative Model and Institutional System For Ecological Space Control

生态空间挤占是环境风险产生的新途径,有效管控生态空间是从源头防控环境风险的重要方式。生态空间管控既要持续发挥环境政策的导向功能,也要发挥环境法律的刚性、稳定和强制作用,实现政策与法律的协同共治。我国实施生态空间用途管制试点以来,地方形成了四种生态空间管控的立法类型。遵循立法规律、借鉴国外经验,我国的生态空间管控宜采用嵌入式立法模式,这需要寻找恰当的嵌入领域。生态空间具有公益性、普惠性、共享性等特点,把其定位为环境法的保护对象,顺应了建设“生态文明”的价值追求和现实需要。应该明确把“保护和改善生态空间”作为环境法的立法目的,通过完善生态空间规划、生态保护红线、用途管制、党政同责等制度,构建预防与救济并存的生态空间管控制度体系。

Ecological space crowding is a new way to generate environmental risks,and effective control of ecological space is a crucial way to prevent and control environmental risks from the source. Ecological space control should not only continue to play the guiding function of environmental policy, but give play to the rigidity, stability and mandatory function of environmental law, so as to achieve the coordinated and co-governance of policy and law.Since the implementation of the pilot project of ecological space use control in China, four types of legislation for ecological space control have been formed locally. Following the law of legislation and learning from foreign experience, China’s ecological space control should adopt an embedded legislative model, which demands to find appropriate embedding field. Ecological space has the characteristics of public welfare, inclusiveness and sharing,and positioning it as the protection object of environmental law conforms to the value pursuit and practical needs of building " ecological civilization". It is indispensable to clearly take " protecting and improving ecological space" as the legislative purpose of the environmental code, and develop an ecological space control system in which prevention and relief coexist by improving the systems of ecological spatial planning, ecological protection redlines, use control,and the party and government co-responsibility.