中国森林生态效益补偿制度理论研究
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摘要
目前,全球生态环境问题已被社会普遍关注,改善生态环境已提上议事日程。森林作为陆地生态系统的主体,是自然界中功能最完善的资源库、基因库、蓄水库、碳贮库和能源库,它对改善生态环境、维护生态平衡起着决定性作用,在实现可持续发展中具有不可替代的作用。但由于我国一直以来过分强调森林的经济价值,忽视其生态功能,致使从东北寒带的原始森林到西南的热带雨林大量的被砍伐,结果导致气候恶化,水土流失。于是,森林生态效益补偿制度开始进入社会的视野。本文将从法律角度研究我国的森林生态效益补偿制度。
本文首先在界定森林生态效益和森林生态效益补偿制度概念的基础上,分析了森林生态效益补偿制度的特点、各方面的理论基础以及基本原则。接着介绍了我国森林生态观的历史沿革,阐述了森林生态效益补偿制度在我国的发展,并着重分析了我国实践中存在的不足及其原因。然后介绍了国外在森林生态效益补偿方面的立法和经济调节手段方面的先进经验,指出这些可为我国所借鉴。最后从多个方面对我国森林生态效益补偿制度的完善提出了一些有益的建议。
我认为,要完善我国的森林生态效益补偿制度,应做好以下几个方面的工作。1、依托法治国家、完善立法决策程序。主要是引入立法听证制度,依法保障相对人的知情权、听证权、陈述权、申辩权、参与决策权等程序权利和民主权利的有效行使。2、完善财政体制。我国还是一个发展中国家,现代化的任务还很重,指望国家财政将森林资源建设完全包下来是不现实的,因此除了财政投入,还要开辟其它的森林生态效益补偿资金的来源渠道,同时国家还应该通过强化资金的管理制度切实提高有关资金的使用效率。3、构建综合性的森林生态效益补偿法律体系。森林生态效益补偿制度应该有一个综合性法律体系作为支撑,国家一方面应制定颁布《森林生态效益补偿基金法》,另一方面要加大现行其他相关配套法律法规如《个人所得税法》、《税收征收管理法》、《防沙治沙法》的修订力度,为森林生态效益补偿工作提供法律保障。4、加强其他相关领域如森林生态效益评价、森林和林地产权制度的研究,为科学补偿提供条件。
At present, the environmental issues have been paid much attention worldwide. How to solve these problems has also been carried to the official agenda. Forest, as a main body of land ecosystem, is the most perfect stock of genes, water resources, carbon, energy and other resources. It has the function to improve the quality of environment, keep balance of ecosystem, and also capable to the implementation of sustainable development. As strong emphasis on economic value while ignorant of ecological function, a great amount of forest, form virgin forest in cold zone in northeast to equatorial rain forest in southwest, were chopped. As a result, climate becomes worsening, water and soil erosion appears to be a fatal question. Thus the compensation system of forest ecological benefits begins to enter the horizon of society. This paper dedicate to legislative analysis of compensation system of forest ecological benefits in China from the legal perspective.
This paper firstly analyzes the characteristics, theoretical basis and the principles of compensation system of forest ecological benefits based on defining the concepts of the forest ecological benefits and the compensation system of forest ecological benefits. Second, it introduces the forest ecosystem from historic view, describes the development of compensation system of forest ecological benefits in China, points out some defects in practice and analyzes the reasons. Then, it introduces some advanced experience from foreign countries about the compensation system of forest ecological benefits. At Last, it puts forward some beneficial proposals from different aspects to perfect the compensation system of forest ecological benefits in China.
In able to consummate the compensation system of forest ecological benefits in China, the following aspects should be considered. First, improve the legislative decision-making process depending on national legislation. We should establish a legislative hearing system to ensure counterpart’s procedural rights and democratic rights such as the right to know, the right of hearing of witnesses, the right to state, the right to defend themselves, the right to participate in making decisions. Second, perfect the financial system. China is a developing country and has strong ambition of modernization. It is unrealistic to expect national funds to burden the conservation of forest resources. Therefore, expect for finance input, government should also strengthen the management system of funds to effectively improve the efficiency of their usage. Thirdly, construct a comprehensive legal system for the compensation of forest ecological benefits. In order to provide legal guarantee for the compensation, on one hand, Compensation Fund for Forest Ecological Benefit Law should be published; on the other hand, it is essential to amend some current relevant laws and regulations such as Personal Income Tax Law, Tax Collection and Administration Law, and Anti-desertification Law. Last, it is necessary to strengthen the research work of related areas such as forest eco-benefit assessment, the property rights of forest and woodland, which can provide a strong support to scientific compensation.
本文首先在界定森林生态效益和森林生态效益补偿制度概念的基础上,分析了森林生态效益补偿制度的特点、各方面的理论基础以及基本原则。接着介绍了我国森林生态观的历史沿革,阐述了森林生态效益补偿制度在我国的发展,并着重分析了我国实践中存在的不足及其原因。然后介绍了国外在森林生态效益补偿方面的立法和经济调节手段方面的先进经验,指出这些可为我国所借鉴。最后从多个方面对我国森林生态效益补偿制度的完善提出了一些有益的建议。
我认为,要完善我国的森林生态效益补偿制度,应做好以下几个方面的工作。1、依托法治国家、完善立法决策程序。主要是引入立法听证制度,依法保障相对人的知情权、听证权、陈述权、申辩权、参与决策权等程序权利和民主权利的有效行使。2、完善财政体制。我国还是一个发展中国家,现代化的任务还很重,指望国家财政将森林资源建设完全包下来是不现实的,因此除了财政投入,还要开辟其它的森林生态效益补偿资金的来源渠道,同时国家还应该通过强化资金的管理制度切实提高有关资金的使用效率。3、构建综合性的森林生态效益补偿法律体系。森林生态效益补偿制度应该有一个综合性法律体系作为支撑,国家一方面应制定颁布《森林生态效益补偿基金法》,另一方面要加大现行其他相关配套法律法规如《个人所得税法》、《税收征收管理法》、《防沙治沙法》的修订力度,为森林生态效益补偿工作提供法律保障。4、加强其他相关领域如森林生态效益评价、森林和林地产权制度的研究,为科学补偿提供条件。
At present, the environmental issues have been paid much attention worldwide. How to solve these problems has also been carried to the official agenda. Forest, as a main body of land ecosystem, is the most perfect stock of genes, water resources, carbon, energy and other resources. It has the function to improve the quality of environment, keep balance of ecosystem, and also capable to the implementation of sustainable development. As strong emphasis on economic value while ignorant of ecological function, a great amount of forest, form virgin forest in cold zone in northeast to equatorial rain forest in southwest, were chopped. As a result, climate becomes worsening, water and soil erosion appears to be a fatal question. Thus the compensation system of forest ecological benefits begins to enter the horizon of society. This paper dedicate to legislative analysis of compensation system of forest ecological benefits in China from the legal perspective.
This paper firstly analyzes the characteristics, theoretical basis and the principles of compensation system of forest ecological benefits based on defining the concepts of the forest ecological benefits and the compensation system of forest ecological benefits. Second, it introduces the forest ecosystem from historic view, describes the development of compensation system of forest ecological benefits in China, points out some defects in practice and analyzes the reasons. Then, it introduces some advanced experience from foreign countries about the compensation system of forest ecological benefits. At Last, it puts forward some beneficial proposals from different aspects to perfect the compensation system of forest ecological benefits in China.
In able to consummate the compensation system of forest ecological benefits in China, the following aspects should be considered. First, improve the legislative decision-making process depending on national legislation. We should establish a legislative hearing system to ensure counterpart’s procedural rights and democratic rights such as the right to know, the right of hearing of witnesses, the right to state, the right to defend themselves, the right to participate in making decisions. Second, perfect the financial system. China is a developing country and has strong ambition of modernization. It is unrealistic to expect national funds to burden the conservation of forest resources. Therefore, expect for finance input, government should also strengthen the management system of funds to effectively improve the efficiency of their usage. Thirdly, construct a comprehensive legal system for the compensation of forest ecological benefits. In order to provide legal guarantee for the compensation, on one hand, Compensation Fund for Forest Ecological Benefit Law should be published; on the other hand, it is essential to amend some current relevant laws and regulations such as Personal Income Tax Law, Tax Collection and Administration Law, and Anti-desertification Law. Last, it is necessary to strengthen the research work of related areas such as forest eco-benefit assessment, the property rights of forest and woodland, which can provide a strong support to scientific compensation.
引文
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