国土空间规划中生态用地的法律界定——兼谈生态环境损害的范围

Legal Definitions of Ecological Land in Land Spatial Planning:On the Scope of Ecological Environment Damage

在“多规合一”之前的空间规划体系中,生态用地已被纳入其中,并得到了一定的保护。但是,生态用地未得到界定,导致生态用地与其他类型土地的边界不清晰,这不利于国土空间规划及国土空间用途管制制度的实施。生态用地的界定存在生态要素决定论、生态功能决定论和主体功能决定论三种观点。在国土空间规划中,宜采纳主体功能决定论下的生态用地概念,但该主体的生态系统服务应是狭义上的,并以生态安全为价值目标。此外,应以主导功能确定生态用地的生态服务功能类型。因而在生态环境损害公益诉讼中,生态环境损害应仅计算主导生态服务功能的丧失。在国土空间立法上,无论是国土空间规划法还是国土空间开发保护法,生态用地都是指微观、具体地块层面的用地类型,生态空间是指宏观、衔接层面的国土空间。

The ecological land has been included and protected to some extent in the spatial plannings before the multiple spatial planning are going to be merged into one.However,ecological land is not defined and its boundary from other types of land is not clear,which is not conducive to the implementation of land spatial planning and land space use regulation system.There are three views on the definition of ecological land:ecological element determinism,ecological function determinism and main function determinism.Under the land spatial planning,the concept of ecological land under the main function determinism should be adopted,and the leading ecosystem services should be in a narrow sense and see ecological security as the value goal.Therefore,in the public interest litigation of ecological environment damage,the loss of leading ecological service function can be counted as ecological environment damage.In terms of land and space legislation,whether the land and space planning law or the land and space development and protection law,ecological land refers to the land use type at the micro and specific plot level,and the ecological space is a regional scope at the macro and cohesive levels.