保护地役权对中国国家公园统一管理的启示——基于美国经验
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摘要
建立分级、统一的管理体制是中国国家公园体制建设的核心目标之一。中国人口多、社区分布密集、土地权属复杂、集体土地比例高等人地矛盾突出的实情,决定了统一的管理体制只有在灵活、精细的管理模式下才能实现。源起于美国的保护地役权制度由于其不改变土地所有权,充分尊重合理的人地关系和供役地人的法定权利,强调细化保护需求下的补偿机制,可以对生态和景观上连续而权属不一的土地资源进行再统筹,实现高效的统一管理。从美国经验来看,保护地役权可以在两种情况下发挥其特有优势,一是在不改变土地所有权性质的前提下,为维持必须依赖人地共生的保护对象提供最优的保护管理决策,二是在资金约束下和土地所有权人无出让意愿的被动情况下提供双方妥协的方案,以限制部分权利的方式实现保护与发展的平衡。研究认为,尽管中国的土地制度不同于西方私有制国家,但通过法理的调整和配套制度的完善,保护地役权可以和中国的法律制度背景相融合。建议从调整完善相关法律、建设配套体制机制、清晰界定资源利用行为的边界、设立成效评估标准和正负反馈机制等方面着手,探索建立中国特色的国家公园保护地役权制度,推动中国国家公园形成统一的管理体制。
Establishing a hierarchical and unified management system is one of the core objectives of China's national park system. Facing a pressure of man-land contradiction in the context of large population,intensively distributed communities,complex land ownership,and a high proportion of collective land,China needs to explore a flexible and refined way to realize unified management in national parks. Conservation easement,originated from the U. S.,is a new tool featured by fully respecting reasonable human-land relationship and servants' legal rights, emphasizing ecological compensation with refined conservation needs,and without changing land proprietary rights. It can be used to integrate land resources fragmented by decentralized property rights but are actually continuous ecological elements and geographic landscape,and finally supports to realize an efficient and unified management. From experiences of the United States,conservation easement has two advantages. First,without changing land proprietary rights,a conservation easement is an effective tool to develop optimal conservation strategies for protection targets which rely on the human-nature compound system. Second,when the budget is limited or land owner is not willing to sell the land,by restricting part of the bundle rights,a conservation easement can be used to find a compromise and achieve a balance between conservation and development. In this study,we hold that although China's land property right system is different from the private ownership of western countries,conservation easement can be integrated with Chinese legal system by reasonably adjusting its legal principles and improving supporting systems. It is suggested to establish a conservation easement system for China's national parks with Chinese characteristics by adjusting and improving relevant laws, constructing supporting institutional mechanisms,clearly defining behavior boundaries for resource utilization,developing implementation effectiveness evaluation criteria,and establishing positive and negative feedback mechanisms. With all these measures,conservation easement will contribute to a unified management of Chinese national parks.
Establishing a hierarchical and unified management system is one of the core objectives of China's national park system. Facing a pressure of man-land contradiction in the context of large population,intensively distributed communities,complex land ownership,and a high proportion of collective land,China needs to explore a flexible and refined way to realize unified management in national parks. Conservation easement,originated from the U. S.,is a new tool featured by fully respecting reasonable human-land relationship and servants' legal rights, emphasizing ecological compensation with refined conservation needs,and without changing land proprietary rights. It can be used to integrate land resources fragmented by decentralized property rights but are actually continuous ecological elements and geographic landscape,and finally supports to realize an efficient and unified management. From experiences of the United States,conservation easement has two advantages. First,without changing land proprietary rights,a conservation easement is an effective tool to develop optimal conservation strategies for protection targets which rely on the human-nature compound system. Second,when the budget is limited or land owner is not willing to sell the land,by restricting part of the bundle rights,a conservation easement can be used to find a compromise and achieve a balance between conservation and development. In this study,we hold that although China's land property right system is different from the private ownership of western countries,conservation easement can be integrated with Chinese legal system by reasonably adjusting its legal principles and improving supporting systems. It is suggested to establish a conservation easement system for China's national parks with Chinese characteristics by adjusting and improving relevant laws, constructing supporting institutional mechanisms,clearly defining behavior boundaries for resource utilization,developing implementation effectiveness evaluation criteria,and establishing positive and negative feedback mechanisms. With all these measures,conservation easement will contribute to a unified management of Chinese national parks.
引文
[1]孙新章,谢高地,张其仔,等.中国生态补偿的实践及其政策取向[J].资源科学,2006,28(4):25-30.
[2]汪劲.中国生态补偿制度建设历程及展望[J].环境保护,2014,42(5):17-22.
[3]GRAY K,GRAY S F.Elements of land law[M].Oxford:Oxford University Press,2009.
[4]于宏伟,李军辉.论地役权若干法律问题[J].法学杂志,2007,28(2):151-153.
[5]DIEHL J,BARRETT T S.The conservation easement handbook:managing land conservation and historic preservation easement programs[M].Washington D.C.:Land Trust Alliance,1988.
[6]PARTIGAN J C.New York's conservation easement statute:the property interest and its real property and federal income tax consequences[J].Albany Law Review,1985,49:435.
[7]耿卓.我国地役权现代发展的体系解读[J].中国法学,2013(3):85-97.
[8]GNE爦Y.Conservation easement and common law easement as a nature conservation tool within the context of property rights and the economic trade off[J].Annales de la Facultéde Droit d'Istanbul,2007,56:279-294.
[9]杨晓东.地役权特点及其与相邻关系辨析[J].经济研究导刊,2008(10):123-124.
[10]李文华,刘某承.关于中国生态补偿机制建设的几点思考[J].资源科学,2010,32(5):791-796.
[11]JACOBS H M.Conservation easements in the U.S.and abroad:reflections and views toward the future[R].Cambridge:Lincoln Institute of Land Policy,2014.
[12]KORNGOLD G.Globalizing conservation easements:private law approaches for international environmental protection[J].Social Science Electronic Publishing,2010,28:585-638.
[13]JONES J,WOMBACHER W,SHERROD L,et al.Common questions on conservation easements[R].Fort Collins:Center for Collaborative Conservation,Colorado State University,2009.
[14]GATTUSO D J.Conservation easements:the good,the bad and the ugly[M].Washington D.C.:National Center for Public Policy Research,2008:569.
[15]吴卫星,于乐平.美国环境保护地役权制度探析[J].河海大学学报(哲学社会科学版),2015,17(3):85.
[16]CHEEVER F,MCLAUGHLIN N A.An introduction to conservation easements in the United States:a simple concept and a complicated mosaic of law[J].Journal of Law,Property,and Society,2015,1:115-116.
[17]Uniform Law Commission.Uniform conservation easement act[EB/OL].(2018-10-24)[2019-01-10].https://www.uniformlaws.org/HigherLogic/System/DownloadDocumentFile.ashx?DocumentFileKey=95e58042-e8d2-2051-1868-617b5d89a7f9&forceDialog=0.
[18]唐孝辉.我国自然资源保护地役权制度构建[D].长春:吉林大学,2014.
[19]曹树青.生态地役权探究[J].环境科学与管理,2006,31(9):44-48.
[20]张鹏.我国环境保护地役权制度之构建研究[D].长沙:中南林业科技大学,2011.
[21]唐孝辉.草原地役权之存在合理性分析[J].理论月刊,2012(2):110-113.
[22]周训芳.论林地地役权[J].江苏行政学院学报,2008(2):107-111.
[23]李锴,徐凌.论我国林地地役权制度的完善[J].江西社会科学,2011,31(8):178-182.
[24]张红霄,杨萍.公共地役权在森林生态公益与私益均衡中的应用与规范[J].农村经济,2012(1):60-64.
[25]苏杨.从人地关系视角破解统一管理难题,深化国家公园体制试点[J].中国发展观察,2018(15):44-46,51.
[26]方言,吴静.中国国家公园的土地权属与人地关系研究[J].旅游科学,2017,31(3):14-23.
[27]何思源,苏杨,罗慧男,等.基于细化保护需求的保护地空间管制技术研究---以中国国家公园体制建设为目标[J].环境保护,2017,45(Z1):50-57.
[28]HE S Y,SU Y,WANG L,et al.Taking an ecosystem services approach for a new national park system in China[J].Resources,Conservation and Recycling,2018,137:136-144.
(1)国家发展和改革委员会对《钱江源国家公园体制试点区试点实施方案》批复指出:要“整合碎片化区域、实现统一管理,鼓励社会参与、实现运行管理创新模式”。浙江省发展和改革委员会对《钱江源国家公园体制试点区试点实施方案》批复意见为:“将地役权作为生态补偿形式的一种探索。”
[2]汪劲.中国生态补偿制度建设历程及展望[J].环境保护,2014,42(5):17-22.
[3]GRAY K,GRAY S F.Elements of land law[M].Oxford:Oxford University Press,2009.
[4]于宏伟,李军辉.论地役权若干法律问题[J].法学杂志,2007,28(2):151-153.
[5]DIEHL J,BARRETT T S.The conservation easement handbook:managing land conservation and historic preservation easement programs[M].Washington D.C.:Land Trust Alliance,1988.
[6]PARTIGAN J C.New York's conservation easement statute:the property interest and its real property and federal income tax consequences[J].Albany Law Review,1985,49:435.
[7]耿卓.我国地役权现代发展的体系解读[J].中国法学,2013(3):85-97.
[8]GNE爦Y.Conservation easement and common law easement as a nature conservation tool within the context of property rights and the economic trade off[J].Annales de la Facultéde Droit d'Istanbul,2007,56:279-294.
[9]杨晓东.地役权特点及其与相邻关系辨析[J].经济研究导刊,2008(10):123-124.
[10]李文华,刘某承.关于中国生态补偿机制建设的几点思考[J].资源科学,2010,32(5):791-796.
[11]JACOBS H M.Conservation easements in the U.S.and abroad:reflections and views toward the future[R].Cambridge:Lincoln Institute of Land Policy,2014.
[12]KORNGOLD G.Globalizing conservation easements:private law approaches for international environmental protection[J].Social Science Electronic Publishing,2010,28:585-638.
[13]JONES J,WOMBACHER W,SHERROD L,et al.Common questions on conservation easements[R].Fort Collins:Center for Collaborative Conservation,Colorado State University,2009.
[14]GATTUSO D J.Conservation easements:the good,the bad and the ugly[M].Washington D.C.:National Center for Public Policy Research,2008:569.
[15]吴卫星,于乐平.美国环境保护地役权制度探析[J].河海大学学报(哲学社会科学版),2015,17(3):85.
[16]CHEEVER F,MCLAUGHLIN N A.An introduction to conservation easements in the United States:a simple concept and a complicated mosaic of law[J].Journal of Law,Property,and Society,2015,1:115-116.
[17]Uniform Law Commission.Uniform conservation easement act[EB/OL].(2018-10-24)[2019-01-10].https://www.uniformlaws.org/HigherLogic/System/DownloadDocumentFile.ashx?DocumentFileKey=95e58042-e8d2-2051-1868-617b5d89a7f9&forceDialog=0.
[18]唐孝辉.我国自然资源保护地役权制度构建[D].长春:吉林大学,2014.
[19]曹树青.生态地役权探究[J].环境科学与管理,2006,31(9):44-48.
[20]张鹏.我国环境保护地役权制度之构建研究[D].长沙:中南林业科技大学,2011.
[21]唐孝辉.草原地役权之存在合理性分析[J].理论月刊,2012(2):110-113.
[22]周训芳.论林地地役权[J].江苏行政学院学报,2008(2):107-111.
[23]李锴,徐凌.论我国林地地役权制度的完善[J].江西社会科学,2011,31(8):178-182.
[24]张红霄,杨萍.公共地役权在森林生态公益与私益均衡中的应用与规范[J].农村经济,2012(1):60-64.
[25]苏杨.从人地关系视角破解统一管理难题,深化国家公园体制试点[J].中国发展观察,2018(15):44-46,51.
[26]方言,吴静.中国国家公园的土地权属与人地关系研究[J].旅游科学,2017,31(3):14-23.
[27]何思源,苏杨,罗慧男,等.基于细化保护需求的保护地空间管制技术研究---以中国国家公园体制建设为目标[J].环境保护,2017,45(Z1):50-57.
[28]HE S Y,SU Y,WANG L,et al.Taking an ecosystem services approach for a new national park system in China[J].Resources,Conservation and Recycling,2018,137:136-144.
(1)国家发展和改革委员会对《钱江源国家公园体制试点区试点实施方案》批复指出:要“整合碎片化区域、实现统一管理,鼓励社会参与、实现运行管理创新模式”。浙江省发展和改革委员会对《钱江源国家公园体制试点区试点实施方案》批复意见为:“将地役权作为生态补偿形式的一种探索。”
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