公产法定:国有自然资源资产分类调整的民法思考

新中国成立后,效法前苏联的中国物权立法是一种按照所有权主体分类调整的“身份型”立法,该立法模式不仅抹杀了不同类型国有财产的“个性”,而且也将自然资源的公共性和生态性消融于普通财产的财产属性和独占使用之中。鉴于“公产法定,私产推定”立法模式能够实现自然资源领域政治国家与市民社会之间的利益平衡,并且“公产法定”具有限制国家公权、保障公众对特定自然资源的平等利用权等制度功能,应以国有自然资源资产的分类管理为逻辑主线,重构自然资源国家所有权客体制度:一是明确自然资源为不动产的物权法地位,借助自然资源不动产登记单元和“复杂物”概念对具有特定生态功能的同一自然资源登记单元的不同自然资源的整合功能,将其纳入传统民法物权客体理论的调整之中。二是依据不同自然资源社会属性之强弱,将国有自然资源资产区分为公产和私产,建立分类调整的规则体系,防范公产之上的国家所有权“遁入私法”。三是物权立法应直接明确国有自然资源资产受公法和私法的双重调整,可以公法和私法相互配合的方式行使所有权。四是国家和集体所有之外的资源原则上可自由利用。

Public property statutory:a civil law perspective on the classified adjustment of state-owned natural resources assets

After the founding of People’s Republic of China,the Chinese real rights legislation which imitated the former Soviet Union is an identity legislation which adjusts by classification according to the subject of ownership.The legislative model not only obliterates the personality of different types of state-owned property,but also dissolves the publicity and ecology of natural resources into the property attributes and exclusive use of ordinary property.As‘the public property statutory,the property presumed’legislative model can balance the interests between the political state and the civil society,and the public property statutory has the system functions of restricting the state’s public rights and protecting the public's equal access to specific natural resources,the classification management of national natural resource assets shall be used as the logic thread to reconstruct the object system of natural resource state ownership:Firstly,the natural resource’s real estate status on real right law shall be incorporated into the adjustment of the traditional civil law object theory,with the help that the natural resource’s real estate registration unit and the concept of‘omplexity’have integration functions to different natural resources with specific ecological functions within the same natural resources registration unit.Secondly,state-owned natural resources shall be classified into public property and private property according to the strength and the weakness of the social attributes of natural resources.A rule system with classified adjustments shall be established to prevent the state ownership on public property from‘breaking into private law’.Related real right legislations shall expressly and directly provide that state-owned natural resource assets are subject to dual adjustments by public and private laws,which can be enforced by way of the cooperation with public law and private law.Fourthly,natural resources owned other than the state and collective are resources for free use.