公私法综合视野下自然保护地财产权限制与补偿研究

Research on the Limitation and Compensation of Property Rights in Protected Areas from the Comprehensive Perspective of Public and Private Law

自然保护地是改善生态环境质量、传承中华民族文化、维护国家生态安全、建设美丽中国的重要抓手,肩负有保护生态系统、保护生态屏障的重要使命。但自然保护地划定以及建设管理活动会与已经形成的以土地利用为核心的不动产权利体系发生抵牾,即自然保护地生态环境公共利益保护与其所附着土地上原有的财产权的冲突。公私法分离视野下的管制性征收理论以及地役权制度无法有效解决这一冲突,而公私法综合视野下的环境公物理论则为解决自然保护地财产权限制与补偿问题提供了一种新的思路。作为环境公物的自然保护地,其在划定、建设、管理、利用中均可能出现对财产权的干预。故此,应当准确区分这种干预究竟构成征收,还是公共地役权对“剩余财产权”的限制。自然保护地公共地役权对“剩余财产权”的限制也应当予以补偿。“法定补偿+公共地役权补偿”二元补偿模式将选择权赋予供役人,由其自主选择补偿方式并接受相应的役权限制。二元补偿模式既能够使权利受限主体获得最低程度补偿,又能激励有意愿的供役人选择自愿、主动增加生态环境增益行为,切实提升生态环境的公共效能。

The protected area is an important starting point for improving the quality of the ecological environment,inheriting the culture of the Chinese nation,safeguarding national ecological security,and building beautiful China.It shoulders the important mission of protecting the ecosysterm and protecting the eclogical barrier.However,the delineation of nature reserves and construction management activities may conflict with the exercise of rights under the establishad system of real property rights with land use as the core,that is,there will be conflicts between the protection of the public interest of the ecological environment of protected areas and the original property rights on the land to which they are attached.The theory of regulatory expropriation and the easement system from the perspective of the separation of public and private law cannot effectively resolve this conflict,while the theory of environmental public property from the comprehensive perspective of public and private law provides a new way of thinking to solve the problem of property right restriction and compensation in protected areas.As an environmental property,the protected area may interfere with property rights in its demarcation,construction,management and utilization.Therefore,a precise distinction should be made between whether such an intervention constitutes expropriation or a restriction on the right to residual property by a public easement.Restrictions on residual property rights in protected areas of public easements should also be compensated.The binary compensation model of“statutory compensation+public easement compensation”gives the right of choice to the owner of the servient land,who can choose the compensation method and accept the corresponding easement restrictions.The binary compensation model can not only enable the subject with restricted rights to receive the minimum compensation,but also motivate willing subjects to choose to voluntarily and actively increase the ecological environment gain,and effectively improve the public efficiency of the ecological environment.