论国家公园国有土地占主体地位的实现路径——以地役权为核心的考察

建立国家公园体制是党的十八届三中全会提出的重点改革任务之一,是我国生态文明制度建设的重要内容。根据《建立国家公园体制总体方案》的要求,国家公园应当确保全民所有的自然资源资产占主体地位。土地作为国家公园中最核心的自然资源资产,对其主体地位的理解和认定将直接影响土地权属及其流转,也在相当程度上决定了国家公园建设的成败。主体地位有绝对数量意义和实际控制意义两种理解,后者在理论上和实践中更为可取。在此前提下,私法背景下的地役权较之强制性的征收制度以及传统合意性的土地流转模式,在理论构造上相契合,在实践探索中也得到印证,为实现国家公园国有土地占主体地位提供了新的思路。

The Realization of State-Owned Land as Dominating Land in National Park: A Perspective of Easement

The establishment of national park system is one of the key reform tasks which is proposed by Chinese Communist Party and the Central Government,and it is an important aspect of ecological civilization construction.The Master Plan on Establishing China’s National Park System requires that national park shall ensure natural resource assets owned by the whole people shall be dominant.Land is the core natural resource assets in the national park,so the understanding and definition of“domination”will affect ownership and transfer directly,and it also determines the result of national park.There are two ways of understanding of domination,namely,domination with most of quantity and domination with actual control.The latter is preferable in theory and practice.Under this premise,compared with compulsory expropriation system and traditional land-transfer modes,the easement which is a system of private law provides a new opportunity for the realization of the dominant position of state-owned land in national parks.