自然生态保护规制实践逻辑对生态环境法典编纂的指引

On the Guidance of the Practical Logic in the Regulation of Natural Ecological Conservation for the Codification of Eco-environmental Laws

生态环境法典的一个重要组成部分是自然生态保护编,其编纂不宜采用“生态要素+生态区域”的二元平行式进路,应采取“空间规制→行为模式”的一元二次递进式进路。我国自然生态保护实践形成了以“自然生态空间-生态保护红线-自然保护地体系”为基本制度的三重空间规制逻辑,能够为生态环境法典自然生态保护编的制定提供行为模式的基本架构和规范基础。生态环境法典自然生态保护编的制定,应当建立“生态保护红线底线规制”思维,确立生态保护红线制度在自然生态保护领域核心制度地位;在法典总则编重申“保护优先”基本原则的基础上,在自然生态保护编确立“保护第一”原则,化解自然生态空间范围内生态产品利用与自然生态保护的对峙,为生态保护利益补偿、生态保护惠益公平分配分享提供基本的规范指引。

An essential part of the Eco-environmental Code is the section on natural ecological conservation,the compilation of which should follow a monistic,twofold and progressive logic of"spatial regulation→behavioral pattern"rather than a binary and parallel compiling approach of"ecological elements+ecological regions".The practice of natural ecological conservation in China has formulated the regulatory logic of three-dimensional space by taking"natural eco-space-red line of ecological conservation-the system of areas for natural conservation"as the basic systems,which is able to provide basic framework of behavioral pattern and normative basis for formulating the section of natural ecological conservation in the Eco-environmental code.For the formulating the section of natural ecological conservation in the Eco-environmental code,it is necessary to adopt the thinking of"bottomline regulation by sticking to the red line of ecological conservation"to establish the status of the system of red line of ecological conservation as the core system in the field of natural ecological conservation;to establish the basic principle of"conservation first in the section of natural ecological conservation on the basis of reaffirming the basic principle of"priority on conservation"in the general provisions of the Code,so as to resolve the confrontation between utilization of ecological products and conservation of natural ecology within the scope of natural eco-space,thus providing basic normative guidelines for making up the interest of ecological conservation and the fair distribution and sharing of benefits of ecological conservation.