草原生态补奖政策的法治化审视与物权式优化

On the legalization and real right optimization in grassland ecological subsidy policy

草原生态补奖是基于草原资源的生产保障与生态服务复合功能,针对因生态公共管制而承担禁牧、草畜平衡等保护义务的农牧户,由政府给予的政策性行政补贴。在行政权主导的实施路径下,补奖政策面临生态保护的权利机制阙如,一揽子目标杂糅折损生态优先的价值位序,集成式能动管理疏于聚焦财产权保障法治命题等问题。有必要引入产权方案下的物权调整模式,对草原生态补奖政策的“权源—目的—手段”要素进行法治化规范调适,围绕适用对象、设立方式、权利主体、合同机制构建草原保护役权制度,促进公法上生态保护义务与私法上物权调整模式的有机结合。

The grassland ecological subsidy policy is based on the compound functions of grassland resources production security and ecological services,and is an administrative subsidy granted by the government to farmers and herdsmen who undertake the obligation of protection such as grazing prohibition and grassland and livestock balance due to ecological public control.Under the implementation path led by administrative power,the subsidy policy is faced with the absence of a right mechanism for ecological protection,such as the value sequence that a package of objectives impairs ecological priority,and the integrated dynamic management that neglects to focus on the rule of law in the protection of real rights.It is necessary to introduce the real right adjustment mode under the real right scheme,to regulate and adjust the elements in"right source-purpose-means"of the grassland ecological compensation policy by law,build a grassland protection servitude system focusing on the applicable object,establishment method,right subject and contract mechanism,and promote the organic combination of ecological protection obligations in public law and real right adjustment in private law.