功能分区视域下国家公园集体土地管制的优化

Optimization of Collective Land Control System in National Parks under the Functional Partition

国家公园功能的多元化、生态环境的复杂化和土地权属的二元化都要求对国家公园进行分区管理,并针对不同区域为包括集体土地在内的多种土地权属类型配置管制方式。现行国家公园试点过程中采用的由土地征收、土地租赁、保护地役权构成的集体土地管制制度存在多种缺陷,并不足以满足国家公园内集体土地多元化管制的需求。以实践中存在的此供需不对应困境为切入点,充分利用土地产权制度改革和国家公园立法这一重大历史机遇期,以外部立法修订为主要方式,通过改革土地征收制度适用范围、引入集体土地产权“三权分置”体制、在《国家公园法》立法中设置保护地役权制度等多项措施并举,实现国家公园集体土地管制制度的优化,弥合国家公园功能分区带来的土地差异化管制需求,为国家公园体制从试点走向正式实践提供基础性规范依据。

The diversification of the functions of national parks,the complexity of the ecological environment and the dualization of land tenure all require the zoning management of national parks and the configuration of control methods for multiple land tenure types,including collective land,for different regions.The collective land control system composed of land expropriation,land leasing,and protection of easements adopted in the current national park pilot process has various defects,and is not sufficient to meet the needs of pluralistic control of collective land in national parks.Taking this supply-demand non-corresponding dilemma in practice as an entry point,we will make full use of the important historical opportunity period of land property rights system reform and national park legislation,and adopt external law revision as the main method,by reforming the scope of land expropriation system and introducing collective land.Several measures such as the“three-property separation”system of property rights and the setting up of the protection of easement system in the legislation of the National Park Law were implemented simultaneously to realize the optimization of the national park collective land control system and bridge the regulatory requirements of land differentiation caused by the functional division of national parks,and provide a basic normative basis for the national park system from pilot to formal practice.