摘要
自然资源规定为国家所有只是手段,最终目的是实现资源的合理利用。从国家所有权到资源的合理使用,这一过程涉及三层法律关系,即资源所有者与资源管理者之间的宪法关系,资源管理者与资源使用者之间的行政管理关系,以及资源使用者与使用者之间的物权关系。实践中,这三层法律关系还远未理顺,存在着体制、机制上的问题,需要进一步改革。国家所有是名义上的所有,全民所有是实质上的所有,应引入公共信托理论来完善两个"所有",并改革完善国家所有权代表体制和管理体制。资源行政管理的实质是国家对资源权利配置的积极干预,干预的限度是保证资源的合理利用,合理利用的基础是对自然资源进行科学分类。自然资源使用权具有明显的物权属性,需强化资源使用权的物权保护。
The provision that natural resources are owned by the state is just a tool to the ultimate goal of using the natural resources reasonably. It refers to three types of legal relations in the process from the state ownership to rights of using the natural resources:the constitutional relationship between the resource owners and the resource managers,the administrative relationship between the resource managers and the resource users;and the property rights relationship between the resource users,In practice,these three legal relations are far from being straightened out. Further reforms are further needed in terms of the problems of institutions and mechanisms. State ownership is in name,and the ownership of natural resources is essentially owned by the whole people. The public trust doctrine should be introduced to improve the ownership of state and the rights of users. Reform to the system of state ownership and management should be conducted as well. The essence of the resources administration is the active interference of state to the allocation of resources,within the limitation of ensuring the rational use of natural resources. The rights of using natural resources have a clear attribute of property right,and thus could be strengthened with property rights protection.