非国有林地管制性征收补偿的习惯法进路

Customary Law Interpretation of Compensation for Regulatory Takings of Non-state-owned Forestry Land

我国实践中将非国有林地直接划定为公益林,完全符合管制性征收的两个重要特征:一是行政行为限制权利人的权利行使;二是对权利人造成财产损失。非国有林地管制性征收补偿的可能依据有二:一是管制性征收及其补偿规定;二是基于意思自治的补偿约定。我国现行法律并无非国有林地管制性征收补偿规定,而且现有多数公益林于划定之初并非基于当事人意思,调出区划亦对当事人意思多有限制,难以认定公益林划定以当事人意思为基础。非国有公益林权利人主张权利限制补偿的依据应为《民法典》第10条,即适用管制性征收补偿习惯。2017年前,非国有林地管制性征收及其补偿已经在全国范围内形成一种事实习惯,司法实践中一贯认可此种补偿,可以认定为习惯法。在对自然资源管制性征收的实践中,即使权利限制及其补偿缺乏制定法依据,只要在长期的实践中已经获得普遍认同,民众公认其拘束力,且此种行为不违法背俗,即可认定形成习惯,则权利人可以依习惯法请求补偿。

In practice,the non-state-owned forestry land is directly designated as public welfare forest in China,which satisfies the two important characteristics of regulatory takings,the limitation of private property and property loss of the forestry rights holders.There are two possible bases for regulatory takings of non-state-owned forest,one is regulatory provisions and the other is compensation agreement.However,there are no compensation provisions of regulatory takings or agreements at the time of delimitation of public welfare forest and it is limited to be disaffiliated from public welfare forest.Therefore,the right holders of public welfare forest may ask for compensation on the basis of article 10 of Civil Code,which is the application of customary law.The regulatory takings and compensation of non-state-owned forest have been a factual customary law all over the country.Many local regulations and rules explicitly stipulate the regulatory takings and compensation of non-state-owned forest,which is also recognized in judicial practice.In the practice of restricting the rights of natural resources,even if such restrictions and compensation lack a statutory basis,the right holders may claim compensation only if the custom of restrictions and compensation is proved.