国有林法律管理制度缺失与完善研究

发布时间：2018-03-30 12:13

本文选题：国有林　切入点：法律管理　出处：《东北林业大学》2011年博士论文

【摘要】：国有林是我国经济社会发展的战略资源,国有林法律管理是我国现代林业建设的重要内容。虽然我国国有林法律管理经过长期发展取得了较大成功,但经营管理体制不顺、行政过多干预国有林管理等弊端积重难返,已经严重制约了国有林的可持续发展。建立健全国有林法律管理制度是国有林适应社会主义市场经济体制的重要保障。本文从构建缺失的国有林法律管理制度及提出完善现有法律制度对策两个方面进行研究,为实现国有林可持续经营与科学管理、适应市场经济运行环境下对国有森林资源的要求,促进传统林业向现代林业的跨越式发展,提供理论支撑。本文所定义的国有林法律管理是指在国有林可持续经营与管护活动中,从事国有林经营与管护的国家机构、国有企业及其他经济组织和个人依据我国《森林法》等国有林法律法规体系所赋予的权力与职责、权利与义务对涉及国有林可持续经营与管护的人力、物力与财力及其他资源进行协调或处理,以达到实现现代林业的活动过程。第一,梳理了我国国有林法律管理制度的演进脉络,发现林业法律、法规在我国国有林法律管理中一直占据着非常重要的地位。同时,虽历经演变,但我国目前的国有林法律管理制度依然存在：相关制度设计存在局限性、相关法律制度欠缺、相关法律规范存在冲突、国有林发展的立法理念亟待确立及制度有效实施的保障机制不健全等问题,客观上阻碍了我国国有林的经营管理与保护及国有林区经济的可持续发展。第二,运用模糊综合聚类等定量分析方法对国有林法律管理制度的实施效果进行评价及对缺失原因进行分析。研究表明：影响国有林法律管理制度实施效果主要是五大类因素；导致国有林法律管理制度缺失则主要在于国有林法律管理制度供给不足、国有林法律管理制度的路径依赖以及国有林法律管理制度有效需求不足等方面原因。在此基础上,本文提出从构建欠缺的国有林法律制度、完善现有的法律制度两个方面以建立健全我国国有林法律管理的制度体系,形成了本论文重要的研究结论与创新主体。第三,提出了国有林法律管理制度缺失的立法体系。制定《国有林经营管理法》,提出其应以生态效益优先为价值引领,涵盖国有林经营管理、风险防范、经济激励、法律责任制度等主要内容；制定《森林资源资产评估法》,提出其应该以诚信原则等为基本指导,以国有林评估监督管理、资产评估准则、市场准入等制度为主要内容；制定《森林保险法》,提出其应以促进森林保险事业的可持续发展为价值取向,以近因与公平竞争等为基本原则,包括政策性森林保险、专项基金与保险诉讼时效等制度为主要内容。第四,提出了完善我国国有林经营管理具体法律制度的对策建议。主要包括：建立跨部门的国有林调查与监测体制；明晰国家职能、健全国有林地所有权、国有林下资源归属权制度；健全与完善国有林用益权与流转法律制度、完善国有林担保物权制度、健全国有林权属登记制度；完善生态效益补偿制度等。第五,提出了国有林法律管理制度有效实施的配套保障机制：公正的纠纷解决机制及广泛的公众参与机制、民主决策机制和有力的执行机制、完善协调机制和构建有力的行政监督机制、强有力的社会监督机制等。建立健全国有林法律管理制度是一项艰巨、漫长的系统工程。随着社会的不断发展与进步,法律法规条款的建立与完善是一个必然的过程,本文的研究有助于弥补我国现阶段森林法律体系中有关国有林经营管理制度的缺陷与不足,为促进国有森林资源依法持续、科学的发展,提高政府部门管理国有森林资源的效率,实现对国有林的规范、高效管理提供理论支撑。
[Abstract]:The state - owned forest is the strategic resource of our country ' s economic and social development , the state - owned forest legal management is the important content of the construction of modern forestry in our country .

The state - owned forest legal management defined in this paper refers to the state institutions , state - owned enterprises and other economic organizations and individuals engaged in the state - owned forest management and management in the state - owned forest sustainable management and management activities . The power and duties , rights and obligations of the state - owned forest laws and regulations related to the sustainable management and management of the state - owned forest are coordinated or treated with the manpower , material and financial resources and other resources related to the sustainable management and management of the state - owned forest , so as to achieve the activity process of realizing modern forestry .

First , combing the evolution of the legal system of state - owned forest in China , it is found that the laws and regulations of forestry always occupy a very important position in the legal management of state - owned forest in China . At the same time , the current state - owned forest legal management system still exists in our country . At the same time , the current state - owned forest legal management system still exists : the limitation of the relevant system design , the lack of relevant legal system , the absence of relevant legal norms , the lack of sound security mechanism of the state - owned forest development , and the sustainable development of the state - owned forest region economy .

Secondly , the implementation effect of the state - owned forest legal management system is evaluated and analyzed by means of quantitative analysis methods such as fuzzy comprehensive clustering . The research shows that the effect of influencing state - owned forest legal management system is mainly five major factors ;
The lack of legal management system of state - owned forest mainly lies in the inadequate supply of state - owned forest legal management system , the path dependence of state - owned forest legal management system and the insufficient effective demand of state - owned forest legal management system .

Thirdly , this paper puts forward the legislative system of the lack of legal management system of state - owned forest . The author puts forward that it should take the priority of ecological benefit as the value leading , covering the main contents of state - owned forest management , risk prevention , economic incentive and legal liability system .
Establish the appraisal method of forest resources assets appraisal , and put forward that it should be guided by the principle of good faith and so on , with the system of state - owned forest valuation supervision and administration , asset appraisal criterion and market access , etc .
In order to promote the sustainable development of forest insurance , the author puts forward that it should focus on the sustainable development of forest insurance cause , including policy forest insurance , special fund and limitation of insurance litigation , etc .

Fourthly , it puts forward the countermeasures and suggestions to perfect the specific legal system of the management and management of state - owned forest in China , including : establishing cross - sectoral state - owned forest investigation and monitoring system ;
Clear the functions of the country , strengthen the ownership of the forest land in the country and the system of the return of the resources under the state - owned forest ;
Perfect and perfect state - owned forest benefit right and circulation legal system , perfect state - owned forest security right system , perfect state - owned forest ownership registration system ;
Perfect ecological benefit compensation system and so on .

Fifth , the paper puts forward the supporting mechanism of effective implementation of the state - owned forest legal management system : the fair dispute settlement mechanism and the broad public participation mechanism , the democratic decision - making mechanism and the powerful implementation mechanism , perfect the coordination mechanism and build strong administrative supervision mechanism , strong social supervision mechanism , etc .

The establishment and perfection of state - owned forest legal management system is an arduous and long system engineering . With the development and progress of society , the establishment and perfection of laws and regulations are a necessary process . The research of this paper will help to make up for the deficiencies and shortcomings of the management system of state - owned forest in our country ' s current forest legal system . In order to promote the sustainable and scientific development of state - owned forest resources , and to improve the efficiency of government departments to manage the state - owned forest resources , theoretical support is provided for the regulation and efficient management of state - owned forest resources .

【学位授予单位】：东北林业大学
【学位级别】：博士
【学位授予年份】：2011
【分类号】：D922.63;F326.2

【引证文献】