自然资源国家所有权的性质反思与制度重构

Nature and Restructuring of State Ownership of Natural Resources

在我国,虽然从宪法、资源法到物权法都对自然资源国家所有权作了规定,但规范意义上的自然资源国家所有权制度并未真正建立起来。在理论上,自然资源国家所有权的法律性质至今难有共识,所有权的内涵认识不一。所有权的法律性质之争直接影响到自然资源国家所有权制度构建的基础,对所有权内涵的不同认识影响到制度构建的具体内容。自然资源国家所有权主体的全民性、客体的公共性决定了自然资源国家所有权的公权力属性,这是一种以公权力方式行使并受公法约束的所有权,本质上是国家的公权力。而在市场条件下,将规模庞大的自然资源设定为国家所有系基于自然资源领域广泛存在的产权不清晰、外部性、公共物品等市场失灵问题,自然资源国家所有权实质上是国家对自然资源的产权管制权。我国的自然资源国家所有权制度应当以约束国家所有权为基础、以规范管制权为中心构建。

Although the state ownership of natural resources has been stipulated in the Constitution. laws on resources and Property Law, a robust system of state ownership of natural resources is yet to be established in China. Consensus on the legal nature of state ownership of natural resources has not been reached theoretically till now? and understandings about the ownership vary. Controversy over the legal nature of state ownership exerts a direct influence on the foundation - building for the system of state ownership of natural resources while different understandings about the ownership's connotation tend to affect the concrete contents of the abovementioned system building. The universality of the state owner ship of natural resources along with the public nature of its object determine that it shall be deemed as public property held by the state, executed by means of public power and constrained by the public law. Moreover? the reason that the natural resources are owned by the state lies in market malfunction. The state ownership of natural resources therefore refers to the regulatory power executed by the state to wards the property right in natural resources. The system of state ownership of natural resources shall be built on constraining the state ownership as a regulatory power.