论我国国有土地与集体土地的界分问题

Discussing on the Division Standard between the State-Owned Land and Collective-Owned Land

我国现行法律对国有土地与集体土地的界分以地域为标准,特别是将城市土地绝对地规定为国家所有。这种界分标准是我国城乡二元结构的产物,也是由于立法者受时代的限制而未能对土地界分作出合理的制度安排的结果。"城市"是一个模糊的概念,以"城市"作为土地的界分标准势必会导致国有土地与集体土地边界的模糊。从权利发生的视角考虑,我们可以规定某一时点的城市土地归国家所有,并用权利证书的方式固定下来,使其成为权利变动的基础,但是我国土地总登记并不登记国有土地。从权利变动的视角考虑,这种界分标准在没有足够且正当充分理由的情况下给予国有土地所有权特别的保护,破坏了物权变动规则。其结果是加剧了国有土地与集体土地的不平等,地方政府借现行界分标准肆意征收集体土地,严重侵害农民权益,引发社会矛盾。在我国现行体制下,彻底打破国家所有与集体所有的各种制度设计都是不现实的。鉴于修改《宪法》、《物权法》之难于操作,比较可行的做法是,以土地总登记为基础,完善土地征收、司法救济等制度,弱化现行界分标准的负面效应,从而达到保护农民合法利益的目的。

In existing laws,division standard between state-owned land and collective-owned land based on geographical area,urban lands belong to the state absolutely.This division standard is not only the product of dual urban-rural structure,but also the result of failing to make reasonable standard by legislators who are restricted to the era limitations.Since the city is a vague concept,this standard resulted in unclear boundaries between state-owned land and collective-owned land.From the perspective of right generation,at certain point,we can make the provision of urban land owned by the state and fix this right by certification to make it the basis of the right change.However,state-owned land isn＇t registrated in general land registration.From the perspective of the right change,this standard gives state-owned land special protection in absence of adequate and proper reasons,thus undermines rules of property rights change.Then inequality between state-owned land and collective land is exacerbated,local governments arbitrary levy collective land,immensely impair legal rights and interests of peasants and bring about a number of social conflicts.To amend Constitution and Property Law is difficult,but we should improve land acquisition and judicial relief system based on general land registration to weaken negative effects of current division standard and to protect legal interests of peasants.