自然保护地立法维护国家生态安全的法理与机制

Jurisprudence and mechanisms of protected areas legislation for safeguarding national ecological security

《关于建立以国家公园为主体的自然保护地体系的指导意见》确立自然保护地在维护国家生态安全中居于首要地位,并要求加快推进自然保护地相关法律法规和制度建设作为保障措施,因此,维护国家生态安全应作为自然保护地立法的价值目标。自然保护地立法通过维护国家生态安全以贯彻总体国家安全观、落实“生态文明”宪法目标,这是国家生态安全作为自然保护地立法目的的法律逻辑。预期以维护国家生态安全为价值目标展开规范体系,前提是厘清“国家生态安全”的法理构造,总体国家安全观体系要求重视从主体、时间、空间3个维度阐释国家生态安全立法需求的层次结构。研究的基本结论为,国家生态安全目标诉求下自然保护地立法,应从主体、时间、空间这3个维度展开维护国家生态安全的法律制度设计:①国家生态安全主体维度下的自然保护地立法重点包括3个方面,在立法目的条款中彰显“生命共同体”的主体定位,在立法体例结构上以自然生态系统内在规律为逻辑主线,在立法逻辑上并重生态规律与行为控制二元标准并据此展开制度设计;②国家生态安全时间维度下的自然保护地法律机制选择包括构建自然保护地动态调整制度、创设自然保护地季节性差别管控制度;③国家生态安全空间维度下的自然保护地法律制度创新包括构建以自然生态空间为核心的分级管理制度、制定大尺度生态空间下的分区管控制度和创设自然保护地保护与管理跨行政区域协作制度。

The Guiding Opinions on Establishing a Protected Area System with National Parks as the Mainstay establishes the primacy of protected areas in maintaining national ecological security,and calls for accelerating the formulation of laws,regulations,and systems related to protected areas as a safeguard measure.Therefore,maintaining national ecological security should be the value orientation of protected areas legislation.The legislation of protected areas implements a holistic approach to national security and the constitutional goal of‘ecological civilization’by maintaining national ecological security,which is the legal logic for national ecological security as the legislative purpose of protected areas.This study attempts to develop a normative system with the value goal of safeguarding national ecological security.The premise is to clarify the legal structure of‘national ecological security.’A holistic approach to national security system requires emphasis on elucidating the hierarchical structure of national ecological security legislation needs from the dimensions of subject,time,and space.The basic conclusion of the study is that protected areas legislation under the goal of national ecological security should develop a design of the legal system that maintains national ecological security in the subject,temporal,and spatial dimensions.It suggests that:①In the subject dimension of national ecological security,the legislative focus on protected areas should include three aspects:highlighting the subject positioning of‘life community’in the legislative purpose clause,taking the internal law of natural ecosystem as the logical main line in the legislative framework,and paying attention to the dual standard of ecological law and behavior control in the legislative logic to carry out the system design.②In the temporal dimension of national ecological security,the legal mechanisms for protected areas should involve establishing a dynamic adjustment system for protected areas and creating a seasonal differential control system for these areas.③In the spatial dimension of national ecological security,the innovation of a legal system for protected areas should involve the construction of a hierarchical management system with natural ecological space as the core,the formulation of a regional control system under large-scale ecological space,and the establishment of a cross-administrative cooperation system for the protection and management of protected areas.