刑法第一百一十五條第二款設(shè)定了失火罪。《最高人民檢察院、公安部關(guān)于公安機(jī)關(guān)管轄的刑事案件立案追訴標(biāo)準(zhǔn)的規(guī)定（一）》（公通字〔2008〕36號(hào)）第一條對(duì)失火罪的立案追訴標(biāo)準(zhǔn)有明確規(guī)定，其中，造成森林火災(zāi)，過(guò)火有林地面積二公頃以上，或者過(guò)火疏林地、灌木林地、未成林地、苗圃地面積四公頃以上的，應(yīng)予立案追訴：有林地、疏林地、灌木林地、未成林地、苗圃地，按照國(guó)家林業(yè)主管部門(mén)的有關(guān)規(guī)定確定。據(jù)此，“過(guò)火有林地面積”如何計(jì)算，有林地如何確定，成為關(guān)鍵所在。

　　The second paragraph of Article 115 of the Criminal Law establishes the crime of fire. Article 1 of the "Provisions of the Supreme People's Procuratorate and the Ministry of Public Security on the Standards for Filing and Prosecuting Criminal Cases under the Jurisdiction of Public Security Organs (I)" (Gongtongzi [2008] No. 36) has clear provisions on the filing and prosecution standards for the crime of fire. Among them, if a forest fire is caused and the area of forest land burned exceeds two hectares, or the area of sparse forest land, shrubland, undeveloped forest land, or nursery land burned exceeds four hectares, it should be filed and prosecuted: forest land, sparse forest land, shrubland, undeveloped forest land, and nursery land shall be determined in accordance with relevant regulations of the national forestry competent department. Based on this, how to calculate the area of forest land that has been burned and how to determine the area of forest land has become the key.

　　過(guò)火有林地面積只是受害森林面積的一種類(lèi)型

　　Overburned forest area is just one type of affected forest area

　　首先，“過(guò)火有林地面積”和“受害森林面積”并非同一概念。無(wú)論是1988年《森林法實(shí)施條例》第二十八條規(guī)定，還是2008年修訂后的《森林防火條例》第四十條規(guī)定，都沒(méi)有提及“過(guò)火有林地面積”這一概念，而只有“受害森林面積”的表述。根據(jù)2009年國(guó)家林業(yè)局頒發(fā)的林業(yè)行業(yè)標(biāo)準(zhǔn)《森林火災(zāi)成因和森林資源損失調(diào)查方法》（LY/T1846-2009）的規(guī)定，森林火災(zāi)是指“發(fā)生《中華人民共和國(guó)森林法實(shí)施條例》第二條規(guī)定的‘林地’上的非控制性燃燒。”森林面積，是指“《中華人民共和國(guó)森林法實(shí)施條例》規(guī)定的林地面積。即，包括郁閉度0.2以上的喬木林地以及竹林地、灌木林地、疏林地、采伐跡地、火燒跡地、未成林造林地、苗圃地和縣級(jí)以上人民政府規(guī)劃的宜林地。”受害森林面積，是指“被火燒過(guò)的森林面積。不論火燒程度如何均統(tǒng)計(jì)在森林火災(zāi)受害面積中。”火燒跡地，是指“在一起森林火災(zāi)中被火燒過(guò)的區(qū)域，其面積等于過(guò)火面積。”火燒跡地內(nèi)面積大于等于1公頃未燒地段，不計(jì)入受害森林面積。另外，在2013年國(guó)家林業(yè)局頒發(fā)的林業(yè)行業(yè)標(biāo)準(zhǔn)《森林火災(zāi)損失評(píng)估技術(shù)規(guī)范》（LY/T2085-2013）中，對(duì)“受害森林面積”的定義是：“被火燒過(guò)的森林面積，不論火燒程度如何均屬于受害森林面積。”至此，我們可以說(shuō)，過(guò)火有林地面積只是受害森林面積的一種類(lèi)型，過(guò)火有林地面積的大小取決于有林地這個(gè)概念如何確定。

　　Firstly, the concepts of 'forest area affected by fire' and 'damaged forest area' are not the same. Whether it is Article 28 of the Implementation Regulations of the Forest Law in 1988 or Article 40 of the revised Forest Fire Prevention Regulations in 2008, there is no mention of the concept of "forest area affected by fire", only the expression of "affected forest area". According to the forestry industry standard "Investigation Method for Forest Fire Causes and Forest Resource Losses" issued by the State Forestry Administration in 2009 (LY/T1846-2009) According to the regulations, forest fire refers to "uncontrolled burning on 'forest land' as stipulated in Article 2 of the Implementation Regulations of the Forest Law of the People's Republic of China." Forest area refers to "the forest land area stipulated in the Implementation Regulations of the Forest Law of the People's Republic of China, including tree forest land with a canopy density of 0.2 or more, bamboo forest land, shrubland, sparse forest land, logging land, burned land, undeveloped forest land, nursery land, and suitable forest land planned by the people's government at or above the county level." The affected forest area refers to "the forest area that has been burned. Regardless of the degree of fire, it is included in the affected area of forest fire." Burnt land refers to "the area that has been burned in a forest fire. The area of the burnt area is equal to the burnt area. The burnt area is greater than or equal to 1 hectare of unburned land, Not included in the affected forest area. In addition, in the forestry industry standard "Technical Specification for Forest Fire Damage Assessment" (LY/T2085-2013) issued by the State Forestry Administration in 2013, the definition of "affected forest area" is: "The forest area that has been burned, regardless of the degree of fire, belongs to the affected forest area." Therefore, we can say that the area of forest land affected by fire is only one type of affected forest area, and the size of the area of forest land affected by fire depends on how the concept of forest land is determined.

　　有林地分類(lèi)的歷史變遷

　　Historical changes in forest land classification

　　其次，“有林地”，在林業(yè)技術(shù)規(guī)范和行業(yè)標(biāo)準(zhǔn)之中一直“活著”，直至2022年1月1日被新的行業(yè)標(biāo)準(zhǔn)宣告“死亡”。其存在的歷程主要包括以下階段：

　　Secondly, 'forest land' has been 'alive' in forestry technical specifications and industry standards until it was declared 'dead' by the new industry standards on January 1, 2022. Its existence process mainly includes the following stages:

　　（1）2003年國(guó)家林業(yè)局頒發(fā)《森林資源規(guī)劃設(shè)計(jì)調(diào)查主要技術(shù)規(guī)定》（林資發(fā)〔2003〕61號(hào)），將林地分為三級(jí)：一級(jí)分為8類(lèi)（有林地、疏林地、灌木林地、未成林地、苗圃地、無(wú)立木林地、宜林地、輔助生產(chǎn)林地）。有林地等5個(gè)一級(jí)地類(lèi)共分為13個(gè)二級(jí)地類(lèi)，其中，有林地分為喬木林、紅樹(shù)林、竹林3個(gè)二級(jí)地類(lèi)。二級(jí)地類(lèi)喬木林又分為純林、混交林2個(gè)三級(jí)地類(lèi)。

　　(1) In 2003, the State Forestry Administration issued the "Main Technical Regulations for Forest Resource Planning, Design and Survey" (Linzifa [2003] No. 61), which divided forest land into three levels: the first level is divided into eight categories (forest land, sparse forest land, shrubland, undeveloped forest land, nursery land, non standing forest land, suitable forest land, and auxiliary production forest land). There are 5 primary land types including forest land, which are divided into 13 secondary land types. Among them, forest land is divided into 3 secondary land types: tree forest, mangrove forest, and bamboo forest. The second level forest is divided into two third level forest types: pure forest and mixed forest.

　　（2）2009年國(guó)家林業(yè)局發(fā)布了林業(yè)行業(yè)標(biāo)準(zhǔn)——《林地分類(lèi)》（LY/T1812-2009）（2009年10月1日實(shí)施），將林地分為兩級(jí)，其中一級(jí)分為8類(lèi)（有林地、疏林地、灌木林地、未成林地、苗圃地、無(wú)立木林地、宜林地、輔助生產(chǎn)林地）。有林地、灌木林地、未成林地、無(wú)立木林地、宜林地5個(gè)一級(jí)地類(lèi)共分為13個(gè)二級(jí)地類(lèi)，其中，有林地分為喬木林、紅樹(shù)林、竹林3個(gè)二級(jí)地類(lèi)。

　　(2) In 2009, the State Forestry Administration issued the forestry industry standard - "Classification of Forest Land" (LY/T1812-2009) (implemented on October 1, 2009), which divided forest land into two levels. The first level was divided into eight categories (including forest land, sparse forest land, shrubland, undeveloped forest land, nursery land, non standing forest land, suitable forest land, and auxiliary production forest land). There are 5 primary land types including forest land, shrubland, undeveloped forest land, non standing forest land, and suitable forest land, which are divided into 13 secondary land types. Among them, forest land is divided into 3 secondary land types: tree forest, mangrove forest, and bamboo forest.

　　（3）受制于《國(guó)土空間調(diào)查、規(guī)劃、用途管制用地用海分類(lèi)指南（試行）》（自然資辦發(fā)〔2020〕51號(hào)）的相關(guān)規(guī)定（參見(jiàn)附錄二），2021年國(guó)家林業(yè)和草原局發(fā)布《林地分類(lèi)》（LY/T1812-2021）（2022年1月1日實(shí)施），代替LY/T1812-2009林地分類(lèi)。更改了一級(jí)地類(lèi)，由8類(lèi)調(diào)整為7類(lèi)，即喬木林地、竹林地、疏林地、灌木林地、未成林造林地、跡地、苗圃地。在《林地分類(lèi)》（LY/T1812-2021）取消了“有林地”這一地類(lèi)。這一取消至少帶來(lái)三方面問(wèn)題：一方面，從邏輯上講，“有林地”地類(lèi)的取消，直接導(dǎo)致“過(guò)火有林地面積”成為具文。另一方面，從執(zhí)法上說(shuō)，“過(guò)火有林地面積”既不能解釋為“過(guò)火喬木林地面積”“過(guò)火竹林地面積”，也不能解釋為過(guò)火喬木林地、竹林地的面積之和。同時(shí)，從鑒定角度看，依據(jù)《林地分類(lèi)》，鑒定機(jī)構(gòu)可以就“過(guò)火喬木林地面積”“過(guò)火竹林地面積”作出結(jié)論，但無(wú)法就“過(guò)火有林地面積”作出結(jié)論。一言以蔽之，刪除“有林地”一級(jí)地類(lèi)，導(dǎo)致“過(guò)火有林地面積”成為具文。顯而易見(jiàn)，如何做好“過(guò)火有林地面積”與森林防火條例、林業(yè)技術(shù)規(guī)范以及行業(yè)標(biāo)準(zhǔn)之間的過(guò)渡和銜接，已經(jīng)成為司法機(jī)關(guān)和林草部門(mén)面臨的一個(gè)緊迫任務(wù)。

　　(3) Subject to the relevant provisions of the "Guidelines for Land and Sea Use Classification for National Land and Space Survey, Planning, and Use Control (Trial)" (Natural Resources Office [2020] No. 51) (see Appendix 2), in 2021, the State Forestry and Grassland Administration issued the "Forest Land Classification" (LY/T1812-2021) (to be implemented on January 1, 2022), replacing LY/T1812-2009 Forest Land Classification. The first level land classification has been changed from 8 categories to 7 categories, namely tree forest land, bamboo forest land, sparse forest land, shrub forest land, undeveloped forest land, fallow land, and nursery land. The classification of forest land (LY/T1812-2021) has removed the category of "forest land". This cancellation brings at least three problems: on the one hand, logically speaking, the cancellation of the "forest land" land type directly leads to the "excessive forest land area" becoming a mere formality. On the other hand, from a law enforcement perspective, "burned forest land area" cannot be explained as "burned tree forest land area" or "burned bamboo forest land area", nor can it be explained as the sum of burned tree forest land and bamboo forest land areas. At the same time, from an appraisal perspective, according to the Classification of Forest Land, appraisal institutions can draw conclusions on the area of burned trees and forests and the area of burned bamboo forests, but cannot draw conclusions on the area of burned forests. In short, the deletion of the first level land category of "forest land" has resulted in the inclusion of "burned forest land area" in the text. It is obvious that how to make a transition and connection between the "excessive forest area" and forest fire prevention regulations, forestry technical specifications, and industry standards has become an urgent task faced by judicial organs and forestry and grassland departments.

　　失火案相關(guān)規(guī)定

　　Regulations related to fire incidents

　　附錄一：《最高人民檢察院、公安部關(guān)于公安機(jī)關(guān)管轄的刑事案件立案追訴標(biāo)準(zhǔn)的規(guī)定（一）》（公通字〔2008〕36號(hào)）第一條　［失火案（刑法第一百一十五條第二款）］過(guò)失引起火災(zāi)，涉嫌下列情形之一的，應(yīng)予立案追訴：

　　Appendix 1: "Provisions of the Supreme People's Procuratorate and the Ministry of Public Security on the Standards for Filing and Prosecuting Criminal Cases under the Jurisdiction of Public Security Organs (I)" (Gongtongzi [2008] No. 36) Article 1 [Fire Case (Article 115, Paragraph 2 of the Criminal Law)] If a fire is caused by negligence and is suspected of one of the following circumstances, it shall be filed for prosecution:

　　（一）造成死亡一人以上，或者重傷三人以上的；（二）造成公共財(cái)產(chǎn)或者他人財(cái)產(chǎn)直接經(jīng)濟(jì)損失五十萬(wàn)元以上的；

　　（1） Causing one or more deaths, or three or more serious injuries; （2） Causing direct economic losses of more than 500000 yuan to public or others' property;

　　（三）造成十戶以上家庭的房屋以及其他基本生活資料燒毀的；

　　（3） Causing the burning of houses and other basic living materials of more than ten households;

　　（四）造成森林火災(zāi)，過(guò)火有林地面積二公頃以上，或者過(guò)火疏林地、灌木林地、未成林地、苗圃地面積四公頃以上的；

　　（4） Causing forest fires, burning forest land with an area of more than two hectares, or burning sparse forest land, shrubland, undeveloped forest land, or nursery land with an area of more than four hectares;

　　（五）其他造成嚴(yán)重后果的情形。本條和本規(guī)定第十五條規(guī)定的“有林地”、“疏林地”、“灌木林地”、“未成林地”、“苗圃地”，按照國(guó)家林業(yè)主管部門(mén)的有關(guān)規(guī)定確定。

　　（5） Other situations that cause serious consequences. The terms "forest land", "sparse forest land", "shrubland", "undeveloped forest land", and "nursery land" as stipulated in this article and Article 15 of these regulations shall be determined in accordance with the relevant regulations of the national forestry authority.

　　第十五條　［消防責(zé)任事故案（刑法第一百三十九條）］違反消防管理法規(guī)，經(jīng)消防監(jiān)督機(jī)構(gòu)通知采取改正措施而拒絕執(zhí)行，涉嫌下列情形之一的，應(yīng)予立案追訴：

　　Article 15: If a person violates fire management regulations and refuses to implement corrective measures after being notified by the fire supervision agency, and is suspected of any of the following circumstances, they shall be prosecuted:

　　（一）造成死亡一人以上，或者重傷三人以上；

　　（1） Causing one or more deaths, or three or more serious injuries;

　　（二）造成直接經(jīng)濟(jì)損失五十萬(wàn)元以上的；

　　（2） Causing direct economic losses of over 500000 yuan;

　　（三）造成森林火災(zāi)，過(guò)火有林地面積二公頃以上，或者過(guò)火疏林地、灌木林地、未成林地、苗圃地面積四公頃以上的；

　　（3） Causing forest fires, burning forest land with an area of more than two hectares, or burning sparse forest land, shrubland, undeveloped forest land, or nursery land with an area of more than four hectares;

　　（四）其他造成嚴(yán)重后果的情形。

　　（4） Other situations that cause serious consequences.

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