中国园林·刊首语 | 2021-09
本期主题：风景园林政策与法规
管子言：“法者，天下之仪也”; 亚里士多德说：“法律就是秩序，有好的法律才有好的秩序”。法律是调整社会关系的行为规范，是最高的社会规则，也是一个国家的根本。对于风景园林实践，法律法规同样起到规制与基础性的支撑作用。一部好的法律、一项好的制度，能推动行业快速发展，反之亦然。对于风景园林教学和研究，法律法规不仅是规则条文，更是一种制度分析方法与思维，对理解风景园林对象、现象与规律至关重要。
党的十八大提出生态文明建设方略，尤其注重生态文明制度建设与创新，这将对风景园林学产生深远的影响。如何前瞻性地预判甚至能在规则制定上有所行动，可能在一定程度上决定行业、专业、学科的发展。2021年两会期间，全国人大代表陆銮眉教授提交了设立风景园林师职业资格的议案，再一次掀起对风景园林人“卡脖子”问题的热议。历次《国家职业资格目录》调整都未纳入风景园林，究其原因，是因为缺乏上位法作为设定依据。可见，法律制定关乎风景园林人的命运。恰逢此时，《中国园林》推出“风景园林政策与法规”主题，精准回应中国问题和学科前沿，高屋建瓴且非常及时。
风景园林与法律的关联历史悠久，根植于社会变迁。欧洲人文地理学者认为landscape不仅指物质空间，更多关乎权力与正义。劳瑞· 欧林也认为风景园林是最政治性的事务之一(Landscape architecture is one of the most political things you can do)。我们津津乐道的英国古典园林中的“哈哈”墙，其实质是物权相邻关系的产物，而不是风景园林师的独特发明。直到被认为是第一部资源保护立法的《大池塘法》颁布，风景立法才开始从保护私人物权向保护公共福祉转变。进入20 世纪，风景逐渐作为一种人权，一种法定权利登上历史舞台。
20世纪初，英国阶级斗争的一个重要物质空间载体就是风景，进入国家优美风景的权利即乡村漫游权(rightto roam)，既是阶级斗争的核心议题，也改变了沿袭千年的绝对所有权制度，催生了英国的《乡村通行与国家公园法》。1965年，具有划时代意义的美国哈德逊河风景保护协会诉联邦水利委员会案，是风景保护民间机构挑战权威水利部门的重要案件，其结果是风景法治的司法新高度。
很多早期的风景园林立法都源自近现代风景园林先驱的卓越贡献。奥姆斯特德不仅是著名的风景园林师，也是美国国家公园、城市公园立法的功勋；撰写《道尔报告》的建筑师约翰· 道尔(John Dower)是促成英国国家公园体系和立法的重要人物；麦克哈格促进了风景园林作为环境主义的途径，并对塑造美国环境立法、政策作出贡献。
纵观当代，风景园林立法及制度在很多国家或地区已相对完善。20世纪70年代的环境危机之后，美国制定了全球领先的环境法体系，历经数任总统，颁布了与风景相关的数十部法律，涵盖环境保护、自然资源保护、国土空间规划、城市建设、开放空间、绿地系统等几乎所有重要领域。2003年，ASLA 聘请法学博士撰写了《风景园林法规与公众健康、安全和财产保护》的研究报告，总结了数十起因不合格风景园林设计对公众造成的间接侵害判例，为很多州的职业资格立法论证提供了支撑。
在具有独特的风景观念与风景文化的英国，landscape一词可以深入骨髓，出现在它的国家政策、国家行政部门事域和很多制度当中。英国的风景制度传统也促成了第一部以风景命名的国际法——《欧洲风景公约》的出台。IFLA 曾在2010年提出《全球风景公约》的倡议，还编写了立法稿，但可惜最终被UNESCO否决并建议在世界遗产公约框架内寻求解决办法。可见，风景国际立法任重而道远。
在国际上，虽然取得了风景园林立法的卓越成就，但在理论上尚缺乏建构，也并未形成交叉研究的分支。1992年出版的斯马顿教授的《法治的风景》至今仍是该领域的经典。2008年，来自剑桥、林肯大学的学者召开了一个名为“风景权” (rights to landscape)的小型国际研讨会，这也是为数不多的相关主题的学术研讨。风景园林法律与政策研究，作为一个前沿性主题，也正在积蓄中国风景园林的力量，但仍处于起步阶段。希望能有更多的学者投身于该方向的研究，直面中国现实问题与需求，贡献于生态文明制度建设。
Guan Zi said: "The law is the world's ritual." Aristotle said: "Law is order, and good law is good order." Law is the code of conduct that adjusts social relationships, the highest social rule, and the foundation of a country. For the practice of landscape architecture, laws and regulations also play a regulatory and basic supporting role. A good law and a good institution can promote the rapid development of the industry, and vice versa. For the teaching and research of landscape architecture, laws and regulations are not only items or clauses, but also a kind of institutional analysis method and a way of thinking, which are essential for understanding the objects, phenomena and laws of landscape architecture.
The 18th CPC National Congress of China proposed the strategy for the Construction of Ecological Civilization, with the particular emphasis on the innovation of legal system on the ecological civilization, which will have a profound impact on the landscape architecture industry. The forward-looking predictions or even actions in the formulation of upper rules may determine the development of the industry, profession, and discipline to a certain extent. During the two sessions in 2021, Professor Lu Luanmei, a deputy to the National People's Congress, submitted a proposal to establish a professional qualification for landscape architecture, which once again sparked heated discussions on the bottleneck issue among landscape architects. All previous versions of the National Vocational Qualification Catalogue have not included landscape architecture. The direct reason is the lack of superior law as a basis for setting. It can be seen that the formulation of laws is related to the fate of landscape architecture industry. At this time, Chinese Landscape Architecture launches the topic of "Landscape Architecture Policies and Regulations", accurately responding to Chinese issues and the frontiers of the discipline, which is foresighted and very timely.
The relationship between landscape architecture and law has a long history and is rooted in social changes. European scholars of human geography believe that landscape not only refers to material space, but is more about power and justice. Laurie Olin also believes that landscape architecture is one of the most political things you can do. The ha-ha wall in English classical gardens that we take delight in talking about is essentially the product of the neighboring relationship of property rights, rather than the unique invention of landscape architects. Until the Great Pond Act, regarded as the first resource protection legislation, was promulgated, landscape legislation began to shift from protecting private property rights to protecting public welfare. In the 20th century, landscape gradually emerged as a kind of human rights and legal rights on the stage of history.
At the beginning of the 20th century, an important material space carrier of the British class struggle was the landscape. The right to enter the country's beautiful landscape, the right to roam, was not only the core issue of the class struggle, but also changed the absolute ownership that was followed for a millennium and gave birth to the National Parks and Access to the Countryside Act. In 1965, the epochmaking Scenic Hudson Preservation Conference V. Federal Power Commission was an important case in which a non-governmental organization of landscape protection challenged an authoritative water conservancy department. The result was a higher level of justice for the judicial landscape.
Many early landscape legislations also originated from the outstanding contributions of modern landscape architecture pioneers. Olmsted is not only a famous landscape architect, but also a meritorious figure in the legislation of national parks and urban parks in the United States; John Dower, an architect and author of the Report of National Parks in England and Wales, was an important person in shaping the British national park system and legislation; and Ian McHarg promoted landscape architecture as a way of environmentalism and contributed to the shaping of American environmental legislation and policies.
Throughout the contemporary times, the legislation and regulation system of landscape architecture have been relatively developed in many countries or regions. After the environmental crisis in the 1970s, the United States formulated the world's leading environmental law system. After several presidents, it has promulgated dozens of laws related to landscapes, covering almost all important areas such as environmental protection, natural resource protection, land use and spatial planning, open space, and green space system. In 2003, ASLA hired a Juris Doctor to write a research report of Landscape Architecture Regulations and Public Health, Safety and Property Protection, which summarized dozens of cases of indirect infringements on the public caused by unqualified landscape architecture designs, and provided support for the legislation hearings of professional qualification in many states.
In UK, which has a unique concept and culture of landscape, the word Landscape can go deep into its bones and appear in its national policies, national administrative departments, and many national institutions. The UK landscape system tradition also contributed to the introduction of the first international law named after landscapes–the European Landscape Convention. IFLA once proposed the Global Landscape Convention in 2010, and also prepared a legislative draft, but unfortunately it was eventually rejected by UNESCO, which suggested to find a solution within the framework of the World Heritage Convention. It can be seen that international landscape legislation has a long way to go.
In the international arena, although outstanding achievements have been made in landscape architecture legislation, there is still a lack of establishment in theory, nor has it formed a branch of interdisciplines. Professor Richard Smardon's The Legal Landscape published in 1992 is still a milestone in this field. In 2008, scholars from the University of Cambridge and Lincoln University held a small international seminar on "Rights to Landscape", which is also one of the few academic seminars on related topics. Landscape architecture law and policy research, as a frontier subject, is also accumulating the strength of landscape architecture in China, but it is also in its infancy. I hope that more scholars can devote themselves to the research in this direction, face China's actual problems and needs, and contribute to the construction of legal system on ecological civilization.
本刊特约编辑：张振威 副教授
Associate Professor ZHANG Zhenwei
Special Editor
引文格式
张振威.刊首语[J].中国园林，2021，37(9)：2-3.
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