自然保护地役权制度构建——以国家公园对集体土地权利限制的需求为视角

Construction of Protected Area Conservation Easement System——From the Perspective on the Demand for Collectively-owned Land Rights Restrictions in National Parks

在我国国家公园建设进程中,对私人不动产权利进行限制以满足环境公共利益的需求不断增长,我国实践中的征收、赎买、置换、征用、租赁、相邻关系等制度手段,无法有效契合国家公园管理建设对集体土地的需要。自然保护地役权作为地役权现代化的制度产物,蕴含着对于土地的功能指引和利益补偿的内在逻辑,可以在保留现有土地权属关系的前提下,使私有财产承担部分“公物”职能,实现国家对集体土地的管理利用需求。在立法模式的选择上,既可参考法国“行政役权”的设立方式,以公法作为主导和具体规范的载体,将地役权制度作为权利来源;也可参考美国依托环境单行法立法的模式,将起草过程中的《自然保护地法》作为自然保护地役权的法律载体。在构建自然保护地役权制度谱系时,其内容应当包括权利的设立、主体与客体、核心权能以及权利的终止和移转等。

In the process of founding national parks System of PRC,there is a growing need for restrictions on private real estate rights to meet environmental and public interests.Various regulatory and institutional means such as expropriation,confiscation,redeem,land substitute,lease and adjacent relation are all ineffective to meet the needs of constructing national parks system in practice.Protected area conservation easement system,as an modern evolutionary product of the easement,contains the internal logic of functional guidance and benefit compensation for land,could entitle private properties to bear the liabilities of public properties,therefore perform an outstanding utility as an institutional tool for the limitation of collective land rights.In terms of the legislative model path,either refer to the public servitutes paraediorum like French,choose public law as the dominant and specific normative carrier,take the easement system in the Civil Code as the source of law,or Modeled on the United States’way of administrative contract under Consensus,regarded the“Natural Reserves Law”in the drafting process as the legal carrier of protected area conservation easement.When creating the specific content of this new rights,the establishment,the subject and object,the core competence,and the termination and transfer of protected area conservation easement should all be covered.