在中国“双碳”目标与能源结构转型目标下,风光发电设施面临规模用地与用地供给不足的现实困境。从中国现行法规定来看,有法定、意定两类制度可扩张风光发电设施用地规模。但这些制度或将对供地人施加过重的土地权利负担,或无法稳定发电设施所有人用地利益,或欠缺考虑公众因可再生能源开发而获益的能力,都不是保障风光发电设施用地规模的合适方案。公共地役权是基于公益需要,使国家、公众或公共事业部门取得要求不动产权利人容忍某种负担之义务的权利。研究发现,公共地役权作为风光发电设施用地制度,可在扩大设施用地规模的基础上,兼顾保护供地人、用地设施所有人的私益以及公众因风光发电设施用地的获益,是中国风光发电设施用地的理想制度。为发挥公共地役权制度在缓解中国风光发电设施用地供需矛盾方面的利益平衡优势,也为使该制度融入中国法律体系,中国在构建风光发电设施公共地役权制度时,应从内部关系构造与外部法律表达两个方面进行构建：内部关系构造方面,中国构建风光发电设施公共地役权制度不仅包括关系主体、内容和客体构成要素的静态构造,还包括关系设立、变更和终止运行机制的动态构造;外部法律表达方面,中国构建的风光发电设施公共地役权制度具有公私混合的法律规范属性。这一制度完全纳入《中华人民共和国民法典》是不合适的,在《中华人民共和国可再生能源法》即将再次修改的实践背景下,中国风光发电设施公共地役权制度由其统一规定既是必要的,也是可行的。
Under China's “dual carbon” and energy structure transformation goals, wind and solar power generation facilities face a practical dilemma characterized by the conflict between large-scale land requirements and insufficient land supply. Existing Chinese le-gal provisions offer two land acquisition regimes for expanding the scale of such facilities: statutory and consensual. However, these re-gimes either impose excessive land rights burdens on land suppliers, fail to provide stable land-use interests to facility owners, or over-look the public's capacity to benefit from renewable energy development. Consequently, none offers an ideal solution for securing the land scale required for such facilities. Public easement is a right based on public interest that empowers the state, the public, or public utility entities to require the owners of relevant real property to tolerate certain burdens. This study finds that public easement, as a re-gime for securing land use for wind and solar power generation facilities, can not only expand the scale of facility land use but also bal-ance the private interests of land suppliers and facility owners with the public benefits derived from renewable energy development. Thus, it represents an ideal institutional choice for acquiring land for wind and solar power generation facilities in China. To leverage the interest-balancing advantages of public easement in alleviating land supply-demand conflicts and to integrate this regime into Chi-na's legal framework, this study recommends that the construction of a public easement system for wind and solar power generation fa-cilities should encompass two dimensions: internal structural configuration and external legal expression. Regarding internal structural configuration, the system must address not only the static components—namely, subjects, contents, and objects—but also the dynamic mechanisms of creation, modification, and termination. In terms of external legal expression, given that China's public easement system for wind and solar power generation facilities possesses a hybrid public-private legal nature, this system should not be incorporated into the Civil Code of the People's Republic of China. In light of the forthcoming revision of the Renewable Energy Law of the People's Re-public of China, it is both necessary and feasible to uniformly regulate the public easement system for wind and solar power generation facilities in China within this legislation.
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