美国公共牧草地法治管理进程的经验借鉴与若干启示  

Legal process and governance of public rangelands:Experiences and implications from America

作　　者：韩枫 张志涛 张鑫 王建浩 王浩 HAN Feng;ZHANG Zhi-tao;ZHANG Xin;WANG Jian-hao;WANG Hao(Development Research Center,National Forestry and Grassland Administration,Beijing 100714,China;Central South Inventory and Planning Institute of National Forestry and Grassland Administration,Changsha 410014,China)

机构地区：[1]国家林业和草原局发展研究中心,北京100714 [2]国家林业和草原局中南调查规划院,湖南长沙410014

出　　处：《草业学报》2022年第9期220-232,共13页Acta Prataculturae Sinica

基　　金：国家自然科学基金青年项目(72104063);国家林草局草原保护修复管理政策研究项目资助。

摘　　要：通过文献梳理的方式阐明了美国公共牧草地法治化管理进程,并以立法节点为依据,划分为应对草地退化、确立多用途利用与联邦所有制、调整放牧费制度、修正立法及完善政策4个阶段,详述了各阶段的矛盾冲突、治理目标及政策手段,并总结特征。研究发现,草地经历严重退化后,联邦政府积极治理,以立法确立了公有制下的多用途使用原则。法治进程中,分类管理、放牧费制度、公有制、土地资源调查、市场化探索贯穿始终,法治管理手段不断完善,形成了稳定的治理格局。从现代产权制度看,草原资源公有制对资本主义私有制国家亦是一种有效的产权管理探索形式,在私有草原之外,形成了相对完善的法理体系和有效的法治治理基础。尽管中美两国政治经济体制、产权结构不同,但美国公共牧草地管理历程依然为中国提供了较为丰富的经验借鉴,研究认为,中国应在草原国有的公有制原则下,强化草原生态环境保护的法治化;清查草地资源,实施产责明晰的分类分级管理,同时开展生态与民生效益监测;将草原生态补偿及草原重点生态工程纳入常规化法治管理;充分发挥市场作用,实现生态产品多元化供给。This paper clarifies the process of legal management of public rangelands in the United States through a literature review,with coverage divided into four categories according to the legislation:Grassland degradation,establishment of multi-utilization and federal ownership,adjustment of the grazing fee system,and amendment of legislation and improvement of policies.Our report details the contradictions and conflicts,governance goals and policy tools of each stage,and summarizes the outcomes.The study found that after experiencing severe degradation of rangelands,the federal government established the principle of multi-utilization under federal ownership through legislation.In the process of legislation,classification,a grazing fee system,public ownership,land resource survey and marketization became more sophisticated,forming a stable governance pattern.From the perspective of a modern property rights system,the public ownership of rangelands is also an effective form of exploration of property rights management for capitalist private ownership countries,and a relatively comprehensive legal system has been formed.Although China and the United States embrace different political and economic systems,especially the property rights structures,the United States example still provides a wealth of experience.It is recommended that China continue to adhere to the principle of state-owned property for grasslands,and strengthen the legal framework for grassland ecological environmental protection and inventory of grassland resources,implement clear classification and management of production and responsibility,and carry out ecological and well-being monitoring.Compensation for grassland ecological outcomes should be incorporated into routine legislation,giving more attention to the supply of products and ecosystem services.

关 键 词：公共牧草地 草地退化 多用途管理 公有制确立 法治治理 

分 类 号：S812[农业科学—草业科学]