【作者】 万政钰；

【导师】 刘晓莉；

【作者基本信息】 东北师范大学 ， 环境规划与管理， 2013， 博士

【摘要】 草原作为生态系统的重要组成部分，不仅具有巨大的自然价值，而且还具有极高的人文价值。在生态危机日益加剧的今天，草原生态环境恶化问题不容忽视。早在1987年世界资源研究所就曾指出，全世界已有60%以上的草原存在严重的恶化问题，而我国草原生态环境的恶化状况更令人担忧。据农业部草原监理中心最新发布的数据显示，我国存在不同程度退化、沙化、盐渍化、石漠化问题的草原已经占到了全国草原总量的90%，草原生态环境恶化引发了草原生态功能减退、沙尘暴频发、湿地面积缩减、生物多样性减少和草原文化丢失等一系列生态和社会问题。草原生态环境恶化的原因有两个方面：其一是人为因素导致的草原破坏，其二是自然因素引起的草原退化。其中前者是人类自身有能力改变的，而且是主要的；后者则是人力目前所难以扭转的。过去我国关于草原的保护主要集中于自然科学技术领域，近年来才逐步认识到，草原的保护既需要自然科学技术手段的“修补”，又需要社会科学制度的保障，特别是法律制度的保障。法律具有其他社会制度所无法比拟的强制性，与此相比，政策、经济、教育等均属于“软”手段。由于草原生态环境的恶化主要来自于人的行为，而法律又是调整人的行为的更为强有力的手段，所以适用法律规范人的行为以保护草原，应当是人类明智的选择。回溯我国草原法制的发展历程，在很长的一段时间里，没有相对完整的草原立法，这一点在早期的历史朝代中表现得尤为突出，当时草原保护的法律规范主要依附于畜牧业的相关法律，其中比较典型的是西夏时期的《天盛律令》，时至元朝时期才出现了全国性的草原立法，即成吉思汗颁行的《大札撒》。此后的明清时期，草原立法多为地方性法规且内容较为松散。新中国成立后，草原立法才进入了萌芽、发展、逐步完善时期，1985年《草原法》的出台标志着我国草原保护结束了无法可依的局面，2003年《草原法》的颁布实施标志着我国草原保护真正步入了法制化时代。2003年《草原法》堪称我国草原法制的核心，该部法律较好地反映了我国草原保护和合理利用的基本要求，明确了草原行政主管部门的监督检查职责，增强了草原法律责任追究的可操作性，增加了草原建设的专项规定，扩展了草原保护和利用的内容。然而，2003年《草原法》也存在着诸多不足，主要表现为没能完全彻底的落实“可持续发展”的基本理念，这是导致人的行为成为草原生态环境恶化的主要因素的根源；草原立法内容不够完整，缺少草原生物多样性保护、草原生态补偿和草原保护公众参与等方面的具体规定；草原立法技术略显粗疏，表现为刑事责任适用性差和行政责任范围狭窄等；草原立法与《环境保护法》等部门法的规定存在冲突。由此，我国草原立法尚需完善。由于法制的完善离不开实证调研，所以本文选取了内蒙、新疆、四川、云南、宁夏和吉林六大省区作为调研区域，这些区域涵盖了我国南北方的主要草原省份。通过对草原破坏的行为及其主体、草原行政处罚与刑罚处罚、草原犯罪构成与刑罚裁量等方面进行调研，得出的结论与上述理论分析具有实质的一致性，例如草原生态环境恶化的原因主要来源于人的行为和草原犯罪立法可操作性较差等。综上，我国现行的草原立法已初具规模，草原法制保护也初见成效，然而草原的总体状况仍然是“局部改善，总体恶化”，这种局面的形成尽管是多种原因所致，但是其中一个重要因素是我国的草原法制还不能完全满足草原保护建设的实际需要，实证调研也佐证了这一观点。正是基于对我国草原立法的理论分析与草原法制保护的实证调研，并借鉴美国、澳大利亚、加拿大等域外国家在草原立法理念和立法内容等，特别是在生物多样性保护、生态补偿和草原有效监管等方面的先进经验的基础上，本文对我国草原立法提出以下完善对策：其一，转变草原立法理念，包括确立可持续发展的立法理念，坚定可持续发展的立法目的，将“可持续发展”的基本理念全面彻底地融入草原立法、司法与执法的全部进程。其二，健全草原立法内容，包括草原生物多样性保护制度的强化、生态补偿以及公众参与制度的补充与增设，增加《宪法》、《环境保护法》、《草原法》中相关内容，同时出台相应的《环境保护公众参与法》等专门立法；其三，提高草原立法技术，包括细化草原保护相关法律责任规定，实现草原立法技术的规范化；其四，增进草原立法与相关立法的协调性，协调草原立法与相关法律的关系，同时提升地方草原立法的具体适用性，包括增强地方草原立法的先行性和可操作性，尊重草原地区民族习惯等。更多还原

【Abstract】 Grassland as an important part of ecological system, has not only important natural valuebut also important humanistic value. In today’s society with the exacerbation of ecologicalcrisis, the deterioration of grassland ecological enviroment is not allowed to ignore. In theyear of1987, World Resources Institute had pointed out that more than60%of the grasslandin the world exists serious deterioration, nevertheless, the deteriorating condition of grasslandecological enviroment in China is more prominent. The data that Grassland Monitoring andSupervision Center Ministry of Agriculture released shows that grassland exists differentdegrees of degradation, desertification, stalinization, desertification accounts for90%of thetotal national grassland, and grassland deterioration caused a series of ecological and socialproblems, such as declining grassland ecological function, frequent sandstorms, reducingwetland area, decreasing biodiversity, and losing grassland culture. The reason of thedeterioration of grassland has two aspects: first, grassland destruction caused by humanfactors, second, the grassland deterioration caused by natural factors. Between them, theformer can be changed by human and is the main factor, and the latter is difficult to reverse bypeople themselves. In the past, the protection of grassland in our country mainly concentratedin the field of natural science technology, people has realized in recent years gradually that thegrassland protection needs both the fix of natural science technology and the guarantee ofsocial science system, especially the guarantee of legal system. The law is the “hardest”method compared with policy, economy, education which belongs to “soft” methods, and thelaw has coerciveness that other social system cannot match. Due to the deterioration ofgrassland mainly comes from the people’s behavior, the law is the more powerful way ofadjusting people’s behavior, the application of law regulates the behavior of people to protectthe grassland, it should be a wise choice.Back tracking on the grassland legislation history of our country, for a long time it is notdifficult to find that there is no relative complete grassland legislation, this point behavesparticularly outstandingly in the early history dynasty. Legislative regulation of grasslandprotection was attached to relevant laws of the animal husbandry, among them,“Tianshenglaws” of Western Xia Dynasty was typical. National grassland legislation has been founduntil the Yuan Dynasty, namely,“Big Zhasa” enacted by Genghis Khan. Since the Ming andQing Dynasties, most of the prairie legislation is local laws and content is much looser. Afterthe founding of New China, the grassland legislation had entered into the germination,development, and gradually improving period. The promulgation of “Grassland Law” in1985marked the end of the situation which law cannot be applied to grassland protection; In2003the implementation of the “Grassland Law” marks the grassland protection enters into reallegalization age in our country.“Grassland Law” of2003is the core of grassland legal systemin our country, it better reflect the basic requirement of grassland protection and rational use in our country and defined the supervision and examination duty of the grasslandadministrative department, strengthened the maneuverability of the grassland legalresponsibility trace, increased the special provisions in the construction of grassland,extended the content of grassland protection and utilization. However, it exists a series ofdeficiencies, main showing fail to real implement the basic idea of “stainable development”,this is the root cause of the conclusion “people’s behavior is the main factor of deteriorationof grassland”; Grassland legislation content is not complete, lacking of detailed rules onbiodiversity protection, ecological compensation and public participation and so on; Poorgrassland legislation technology showing poor applicability of criminal responsibility andnarrow administrative responsibility, etc; There are conflicts between grassland legislationand other department laws, such as “Environmental Protection Law”. So the grassland legalin our country still need to be improved. Due to perfecting our grassland law cannot doanything without the investigation of the extraterritorial legislation, in our research, wechoose six provinces including the Inner Mongolia Autonomous Region, Xinjiang UygurAutonomous Region, Sichuan Province, Yunnan Province, Ningxia Hui Autonomous Regionand Jilin Province, covering the main prairie provinces of the north and south of China. Andcarried on the investigation and research, including grassland destruction behaviors and itssubject, grassland administrative punishment and criminal punishment, prairie crimeconstitution and penal discretion, etc, the conclusions and the above theoretical analysis havesubstantial consistency, including first, the artificial damage the main cause of grasslanddeterioration comes from people’s behavior and the maneuverability of grassland crimelegislation is poor.Above all, China’s current legal law has begun to take shape, grassland legal protectionalso has produced results, however, overall situation of grassland remains “partialimprovement, overall deterioration”, the formation of this situation is caused by a variety ofreasons, but one of the important reasons is the grassland legal system in our country is notfully meet the actual needs of the grassland protection construction, empirical research alsoillustrates this point. Based on the theoretical analysis of grassland law and empirical researchof grassland legal protection and draw lessons from the legislative concept and legislativecontent of the outside prairie countries such as the United States, Australia, Canada,especially on the basis of advanced experience in biodiversity conservation, ecologicalcompensation and effective regulation of grassland, etc. This paper puts forward thefollowing perfect measures: First, reverse the legislative ideas, including set up the correctlegislative purpose, unify grassland legislation, law enforcement, judicial and law-abidingconcept, establish the sustainable development scientific concept, the basic idea of“sustainable development” integrates thoroughly into all process of the legislative, judicialand law enforcement. Second, perfect the content of grassland legislation, including the strengthening the biodiversity protection system, increased and add ecological compensationand public participation system, add the relevant content of “Constitution”, the“Environmental Protection Law”,“Grassland Law” and introduce relevant special lawcontent. Third, improve grassland legislation technology, definite related legal responsibilityon grassland protection, strengthen the applicability of criminal legal liability, increaseadministrative law responsibility provision and broaden the scope of civil legal liability.Fourth, strengthen the coordination between grassland legislation and the related legislation,coordinate the relation between grassland legislation and other departments of law; strengthenlocal legislative applicability, including the antecedence and operability of local legislation,respect ethnic custom of grassland region.更多还原