环境法体系中的自然保护地立法

作为正在制定过程中的新兴环境立法,自然保护地法、国家公园法等自然保护地立法与环境法体系中的其他法律存在发生规范冲突和赘余的可能,有必要明确其价值定位以及相应的规范表达。在生态文明入宪、入环境基本法的背景下,环境基本法的保护优先原则和综合治理原则内含对优先保护生态整体性的价值期待,需要自然保护地立法予以表达。相较于污染防治法与资源保护法,自然保护地立法以生态环境保护为根本调整目标,且具有调整对象的系统性和调整方式的调适性,契合优先保护生态整体性的需要。为落实这一价值期待,自然保护地立法需构建以分区定保护级别制度、总行为控制制度为核心的制度体系,并采用“自然保护地基本法+各类自然保护地特别法”的总分结构。

Legislation on Protected Natural Reserves as a Part of the EnvironmentalLaw System

The Law on Protected Natural Reserves,the Law on National Parks and other legislations on protected natural reserves,as emerging environmental laws,may contradict and overlap with other environmental laws and,therefore,it is necessary to clarify their value orientations and corresponding normative expressions.Against the background of the enshrinement of the construction of ecological civilization into the Constitution and the basic environmental law,the“protection first”principle and the comprehensive treatment principle of the basic environmental law embody the value expectation of giving priority to the protection of ecological integrity,which needs to be expressed through the legislation on protected natural reserves.Compared with pollution prevention and control laws and resources protection laws,the legislation on protected natural reserves takes the protection of the ecological environment as its fundamental objective,is characterized by the systematicness of regulated targets and the adaptiveness of regulatory methods,and therefore is able to meet the need of giving priority to the protection of ecological integrity.To realize this value expectation,China should establish through the legislation on protected natural reserves an institutional system with area-based protection level system and integrated behavior control system as the core,and adopt a general-specific structure of“a basic law on protected natural reserves+special laws on different kinds of protected natural reserves”.