刑法第一百一十五条第二款设定了失火罪。《最高人民检察院、公安部关于公安机关管辖的刑事案件立案追诉标准的规定（一）》（公通字〔2008〕36号）第一条对失火罪的立案追诉标准有明确规定，其中，造成森林火灾，过火有林地面积二公顷以上，或者过火疏林地、灌木林地、未成林地、苗圃地面积四公顷以上的，应予立案追诉：有林地、疏林地、灌木林地、未成林地、苗圃地，按照国家林业主管部门的有关规定确定。据此，“过火有林地面积”如何计算，有林地如何确定，成为关键所在。

　　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.

　　过火有林地面积只是受害森林面积的一种类型

　　Overburned forest area is just one type of affected forest area

　　首先，“过火有林地面积”和“受害森林面积”并非同一概念。无论是1988年《森林法实施条例》第二十八条规定，还是2008年修订后的《森林防火条例》第四十条规定，都没有提及“过火有林地面积”这一概念，而只有“受害森林面积”的表述。根据2009年国家林业局颁发的林业行业标准《森林火灾成因和森林资源损失调查方法》（LY/T1846-2009）的规定，森林火灾是指“发生《中华人民共和国森林法实施条例》第二条规定的‘林地’上的非控制性燃烧。”森林面积，是指“《中华人民共和国森林法实施条例》规定的林地面积。即，包括郁闭度0.2以上的乔木林地以及竹林地、灌木林地、疏林地、采伐迹地、火烧迹地、未成林造林地、苗圃地和县级以上人民政府规划的宜林地。”受害森林面积，是指“被火烧过的森林面积。不论火烧程度如何均统计在森林火灾受害面积中。”火烧迹地，是指“在一起森林火灾中被火烧过的区域，其面积等于过火面积。”火烧迹地内面积大于等于1公顷未烧地段，不计入受害森林面积。另外，在2013年国家林业局颁发的林业行业标准《森林火灾损失评估技术规范》（LY/T2085-2013）中，对“受害森林面积”的定义是：“被火烧过的森林面积，不论火烧程度如何均属于受害森林面积。”至此，我们可以说，过火有林地面积只是受害森林面积的一种类型，过火有林地面积的大小取决于有林地这个概念如何确定。

　　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.

　　有林地分类的历史变迁

　　Historical changes in forest land classification

　　其次，“有林地”，在林业技术规范和行业标准之中一直“活着”，直至2022年1月1日被新的行业标准宣告“死亡”。其存在的历程主要包括以下阶段：

　　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年国家林业局颁发《森林资源规划设计调查主要技术规定》（林资发〔2003〕61号），将林地分为三级：一级分为8类（有林地、疏林地、灌木林地、未成林地、苗圃地、无立木林地、宜林地、辅助生产林地）。有林地等5个一级地类共分为13个二级地类，其中，有林地分为乔木林、红树林、竹林3个二级地类。二级地类乔木林又分为纯林、混交林2个三级地类。

　　(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年国家林业局发布了林业行业标准——《林地分类》（LY/T1812-2009）（2009年10月1日实施），将林地分为两级，其中一级分为8类（有林地、疏林地、灌木林地、未成林地、苗圃地、无立木林地、宜林地、辅助生产林地）。有林地、灌木林地、未成林地、无立木林地、宜林地5个一级地类共分为13个二级地类，其中，有林地分为乔木林、红树林、竹林3个二级地类。

　　(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《国土空间调查、规划、用途管制用地用海分类指南（试行）》（自然资办发〔2020〕51号）的相关规定（参见附录二），2021年国家林业和草原局发布《林地分类》（LY/T1812-2021）（2022年1月1日实施），代替LY/T1812-2009林地分类。更改了一级地类，由8类调整为7类，即乔木林地、竹林地、疏林地、灌木林地、未成林造林地、迹地、苗圃地。在《林地分类》（LY/T1812-2021）取消了“有林地”这一地类。这一取消至少带来三方面问题：一方面，从逻辑上讲，“有林地”地类的取消，直接导致“过火有林地面积”成为具文。另一方面，从执法上说，“过火有林地面积”既不能解释为“过火乔木林地面积”“过火竹林地面积”，也不能解释为过火乔木林地、竹林地的面积之和。同时，从鉴定角度看，依据《林地分类》，鉴定机构可以就“过火乔木林地面积”“过火竹林地面积”作出结论，但无法就“过火有林地面积”作出结论。一言以蔽之，删除“有林地”一级地类，导致“过火有林地面积”成为具文。显而易见，如何做好“过火有林地面积”与森林防火条例、林业技术规范以及行业标准之间的过渡和衔接，已经成为司法机关和林草部门面临的一个紧迫任务。

　　(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.

　　失火案相关规定

　　Regulations related to fire incidents

　　附录一：《最高人民检察院、公安部关于公安机关管辖的刑事案件立案追诉标准的规定（一）》（公通字〔2008〕36号）第一条　［失火案（刑法第一百一十五条第二款）］过失引起火灾，涉嫌下列情形之一的，应予立案追诉：

　　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，或者重伤三人以上的；（二）造成公共财产或者他人财产直接经济损失五十万元以上的；

　　（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）造成十户以上家庭的房屋以及其他基本生活资料烧毁的；

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

　　（四）造成森林火灾，过火有林地面积二公顷以上，或者过火疏林地、灌木林地、未成林地、苗圃地面积四公顷以上的；

　　（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）其他造成严重后果的情形。本条和本规定第十五条规定的“有林地”、“疏林地”、“灌木林地”、“未成林地”、“苗圃地”，按照国家林业主管部门的有关规定确定。

　　（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.

　　第十五条　［消防责任事故案（刑法第一百三十九条）］违反消防管理法规，经消防监督机构通知采取改正措施而拒绝执行，涉嫌下列情形之一的，应予立案追诉：

　　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，或者重伤三人以上；

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

　　（二）造成直接经济损失五十万元以上的；

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

　　（三）造成森林火灾，过火有林地面积二公顷以上，或者过火疏林地、灌木林地、未成林地、苗圃地面积四公顷以上的；

　　（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）其他造成严重后果的情形。

　　（4） Other situations that cause serious consequences.

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