自然資源國家所有權的性質反思與制度重構

在我國，雖然從憲法、資源法到物權法都對自然資源國家所有權作了規定，但規範意義上的自然資源國家所有權制度並未真正建立起來。在理論上，自然資源國家所有權的法律性質至今難有共識，所有權的內涵認識不一。所有權的法律性質之爭直接影響到自然資源國家所有權制度構建的基礎，對所有權內涵的不同認識影響到制度構建的具體內容。自然資源國家所有權主體的全民性、客體的公共性決定了自然資源國家所有權的公權力屬性，這是一種以公權力方式行使並受公法約束的所有權，本質上是國家的公權力。而在市場條件下，將規模龐大的自然資源設定為國家所有系基於自然資源領域廣泛存在的產權不清晰、外部性、公共物品等市場失靈問題，自然資源國家所有權實質上是國家對自然資源的產權管制權。我國的自然資源國家所有權制度應當以約束國家所有權為基礎、以規範管制權為中心構建。

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 ownership 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 towards 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.