美国保护地役权实践经验及启示

Conservation Easement Practice of American Experience and Its Enlightenment and Implications

保护地役权作为一项自然资源管理与生态环境保护的制度工具,在国际上已经有了较为丰富的理论与实践探索,在中国也受到越来越多的关注,且实践探索不断出现。美国的保护地役权实践经历半个多世纪的探索,其经验与得失可以为中国保护地役权探索提供有价值的借鉴与启示。本文通过对保护地役权与地役权的区别,保护地役权与发展权、生态补偿等其他制度工具的比较,厘清保护地役权在产权属性、实施目的、参与主体等方面的特征。同时,本文对美国保护地役权的法律基础、价值评估机制、相关利益主体的角色与关系等进行了系统梳理与分析。研究发现,美国保护地役权已经有了完善的配套立法,明确了保护地役权转移前后土地产权束的变化,与发展权转移、生态补偿等手段做出了严格的区分;并且基于公平市场价格建立了保护地役权估价方法,用税收优惠来鼓励土地所有者捐赠保护地役权。此外,美国的保护地役权仍面临着公众参与不足、公平与激励难平衡等问题。美国保护地役权的案例与经验可以为中国保护地役权改革与实践中的制度、组织建设与政策工具等提供参考与经验。

As an institutional tool for natural resource management and ecological environmental protection, globally conservation easement has been studied widely, and has received increasing attention and lead to practical exploration in China.The practice of conservation easement in the United States has been explored for more than half a century, and its experience and gains and losses can provide valuable knowledge for the exploration of conservation easement in China.This article compares the differences between conservation easement and easement, and between conservation easement and other institutional tools, and reviews the legal basis of conservation easements, the value assessment mechanism, and the roles and relationships of relevant stakeholders in the United States.It is found that the U.S.conservation easement has a sound supporting legislation, which specifies the changes of land property bundles before and after the transfer of conservation easement, and makes strict distinction with the transfer of development rights and ecological compensation;It values the easement right based on fair market price, and provides incentives to landowners by tax reduction.Yet, conservation easements in the U.S.still face problems such as insufficient public participation and difficulty in balancing equity and incentives.The experiences of conservation easements in the U.S.provides references and experiences for the practice of conservation easements in China.