集体建设用地使用权制度的困局与突破

The Dilemma and Breakthrough of Collective Construction Land Use Right System

受城乡土地二元制影响,集体建设用地使用权制度受到不当抑制。在制度层面,这一权利受到抑制表现为权利规范的错置,即《民法典》将集体建设用地使用权立法任务转嫁给具有公法性质的《土地管理法》,《土地管理法》的公法属性与集体建设用地使用权权利规范的私权属性产生矛盾,进而不当限缩了集体建设用地使用权权利规范的空间。在《民法典》《土地管理法》无法进行大规模修改的现实背景下,解决这一问题的有效途径是通过制定行政法规,对集体建设用地使用权的权利规范内容予以补充和细化,进而拓展集体建设用地使用权的权利规范空间,在体系上形成法律-行政法规的二层次制度结构。

Affected by the dual system of urban and rural land,the system of the right to collective construction land is restrained improperly.At the institutional level,this right is restrained,which is manifested in the misplacement of the right norms,it means the civil code transfers the legislative task of the right to collective construction land to the land management law,which has the nature of public law.There is a contradiction between the public law attribute of the land management law and the private right attribute of the right norms of the right to collective construction land.And then the space of the right to collective construction land is restricted improperly.Under the background that the civil code and the land management law can not be amended on a large scale,the effective way to solve this problem is to make administrative regulations to supplement and refine the content of the right to collective construction land,so as to expand the space of the right to collective construction land,It forms a two-level system structure of law and administrative law.