刑法第一百一十五條第二款設定了失火罪。《最高人民檢察院、公安部關于公安機關管轄的刑事案件立案追訴標準的規定（一）》（公通字〔2008〕36號）第一條對失火罪的立案追訴標準有明確規定，其中，造成森林火災，過火有林地面積二公頃以上，或者過火疏林地、灌木林地、未成林地、苗圃地面積四公頃以上的，應予立案追訴：有林地、疏林地、灌木林地、未成林地、苗圃地，按照國家林業主管部門的有關規定確定。據此，“過火有林地面積”如何計算，有林地如何確定，成為關鍵所在。

　　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.

　　過火有林地面積只是受害森林面積的一種類型

　　Overburned forest area is just one type of affected forest area

　　首先，“過火有林地面積”和“受害森林面積”并非同一概念。無論是1988年《森林法實施條例》第二十八條規定，還是2008年修訂后的《森林防火條例》第四十條規定，都沒有提及“過火有林地面積”這一概念，而只有“受害森林面積”的表述。根據2009年國家林業局頒發的林業行業標準《森林火災成因和森林資源損失調查方法》（LY/T1846-2009）的規定，森林火災是指“發生《中華人民共和國森林法實施條例》第二條規定的‘林地’上的非控制性燃燒。”森林面積，是指“《中華人民共和國森林法實施條例》規定的林地面積。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、苗圃地和縣級以上人民政府規劃的宜林地。”受害森林面積，是指“被火燒過的森林面積。不論火燒程度如何均統計在森林火災受害面積中。”火燒跡地，是指“在一起森林火災中被火燒過的區域，其面積等于過火面積。”火燒跡地內面積大于等于1公頃未燒地段，不計入受害森林面積。另外，在2013年國家林業局頒發的林業行業標準《森林火災損失評估技術規范》（LY/T2085-2013）中，對“受害森林面積”的定義是：“被火燒過的森林面積，不論火燒程度如何均屬于受害森林面積。”至此，我們可以說，過火有林地面積只是受害森林面積的一種類型，過火有林地面積的大小取決于有林地這個概念如何確定。

　　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.

　　有林地分類的歷史變遷

　　Historical changes in forest land classification

　　其次，“有林地”，在林業技術規范和行業標準之中一直“活著”，直至2022年1月1日被新的行業標準宣告“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年國家林業局頒發《森林資源規劃設計調查主要技術規定》（林資發〔2003〕61號），將林地分為三級：一級分為8類（有林地、疏林地、灌木林地、未成林地、苗圃地、無立木林地、宜林地、輔助生產林地）。有林地等5個一級地類共分為13個二級地類，其中，有林地分為喬木林、紅樹林、竹林3個二級地類。二級地類喬木林又分為純林、混交林2個三級地類。

　　(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年國家林業局發布了林業行業標準——《林地分類》（LY/T1812-2009）（2009年10月1日實施），將林地分為兩級，其中一級分為8類（有林地、疏林地、灌木林地、未成林地、苗圃地、無立木林地、宜林地、輔助生產林地）。有林地、灌木林地、未成林地、無立木林地、宜林地5個一級地類共分為13個二級地類，其中，有林地分為喬木林、紅樹林、竹林3個二級地類。

　　(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《國土空間調查、規劃、用途管制用地用海分類指南（試行）》（自然資辦發〔2020〕51號）的相關規定（參見附錄二），2021年國家林業和草原局發布《林地分類》（LY/T1812-2021）（2022年1月1日實施），代替LY/T1812-2009林地分類。更改了一級地類，由8類調整為7類，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》（LY/T1812-2021）取消了“有林地”這一地類。這一取消至少帶來三方面問題：一方面，從邏輯上講，“有林地”地類的取消，直接導致“過火有林地面積”成為具文。另一方面，從執法上說，“過火有林地面積”既不能解釋為“過火喬木林地面積”“過火竹林地面積”，也不能解釋為過火喬木林地、竹林地的面積之和。同時，從鑒定角度看，依據《林地分類》，鑒定機構可以就“過火喬木林地面積”“過火竹林地面積”作出結論，但無法就“過火有林地面積”作出結論。一言以蔽之，刪除“有林地”一級地類，導致“過火有林地面積”成為具文。顯而易見，如何做好“過火有林地面積”與森林防火條例、林業技術規范以及行業標準之間的過渡和銜接，已經成為司法機關和林草部門面臨的一個緊迫任務。

　　(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.

　　失火案相關規定

　　Regulations related to fire incidents

　　附錄一：《最高人民檢察院、公安部關于公安機關管轄的刑事案件立案追訴標準的規定（一）》（公通字〔2008〕36號）第一條　［失火案（刑法第一百一十五條第二款）］過失引起火災，涉嫌下列情形之一的，應予立案追訴：

　　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）造成公共財產或者他人財產直接經濟損失五十萬元以上的；

　　（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，過火有林地面積二公頃以上，或者過火疏林地、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）其他造成嚴重后果的情形。本條和本規定第十五條規定的“有林地”、“疏林地”、“灌木林地”、“未成林地”、“苗圃地”，按照國家林業主管部門的有關規定確定。

　　（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　［消防責任事故案（刑法第一百三十九條）］違反消防管理法規，經消防監督機構通知采取改正措施而拒絕執行，涉嫌下列情形之一的，應予立案追訴：

　　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）造成直接經濟損失五十萬元以上的；

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

　　（三）造成森林火災，過火有林地面積二公頃以上，或者過火疏林地、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）其他造成嚴重后果的情形。

　　（4） Other situations that cause serious consequences.

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