国家公园立法建设:美国经验借鉴与中国实践探索

Legislative construction of national parks: drawing on American experience and Chinese practical exploration

  • 摘要: 党的二十届三中全会作出部署, 引领以国家公园为主体的自然保护地体系建设进入全面提速新阶段。国家公园作为我国当前最重要的自然保护地类型, 其立法建设滞后的短板日渐凸显。从总体立法现状来看, 目前仍处于高层次专门法律缺乏、上位法衔接不清、地方性法规局限的困境。从立法模式来看, “地方先行立法”占据主导地位, 该模式虽便于灵活管理, 但同时也暴露出地方主义倾向、立法程序不统一和管理权责不清等问题。与此相比, 美国国家公园基于完善的法律体系建设, 已形成较为有效的管理体制, 将为我国国家公园立法提供重要借鉴。通过对比中美两国国家公园立法建设现状, 得出以下结论:第一, 我国国家公园立法应基于综合框架立法模式, 采用“基本法+专项法+技术标准”的结构, 逐步健全立法体系并深化立法层次。第二, 通过多元化法律形式, 实现各级政府之间的权力整合, 确保法律的统一适用, 并针对具有特殊性自然资源的管理需求, 进行相应的专项立法。第三, 当前立法应特别关注土地确权问题, 立法内容应在土地确权上做出明确规定, 包括法定设立程序、平衡各方主体地位、强化公示力度等措施。

     

    Abstract: The Third Plenum of the 20th Central Committee of the Communist Party of China has made arrangements to lead the construction of the natural protected area system, with national parks as the main body, into a new stage of comprehensive acceleration. As the most important type of protected areas in China, the shortcomings of legislative construction in national parks are becoming increasingly prominent. From the overall legislative situation, it is still in a dilemma of lacking high-level specialized laws, unclear connection between higher-level laws, and limitations of local regulations. From the perspective of legislative mode, "local legislation first" occupies a dominant position. Although this mode is convenient for flexible management, it also exposes problems such as localism tendency, inconsistent legislative procedures, and unclear management rights and responsibilities. Compared to this, the United States′ national parks have established a relatively effective management system based on a sound legal system, which will provide important reference for the legislation of national parks in China. This article draws the following conclusions by comparing the current situation of national park legislation construction in China and the United States. Firstly, China′s national park legislation should be based on a comprehensive framework legislative model, adopting a structure of "basic law, special law and technical standards", gradually improving the legislative system and deepening the legislative level. Secondly, through diversified legal forms, power integration among governments at all levels can be achieved to ensure the unified application of laws, and corresponding special legislation can be made for the management needs of natural resources with special characteristics. Thirdly, current legislation should pay special attention to the issue of land tenure, and the legislative content should make clear provisions on land tenure, including measures such as legal establishment procedures, balancing the status of various parties, and strengthening public disclosure.

     

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