土地承包经营权的功能转型及权能实现——基于农村社会管理创新的视角

Right to Land Contractual Management:Functional Transformation and Realization of Capability for Right

中国现行土地承包经营权制度存在的突出问题是制度功能超载和法律权能缺失并存。相关法律和政策为了同时满足国家、社会、集体和个人等不同利益主体的多样性诉求,赋予了土地承包经营权以政治性、社会性和经济性等涵盖面极为广泛的多种制度功能。不同制度功能所追求的价值目标各异,导致相互之间的结构性冲突难以避免,由此不仅进一步加剧了农村内部的结构性紧张局面,也使得功能超载成为土地承包经营权制度不能承受之重。另一方面,土地承包经营权在实体法、程序法和特别法意义上的具体法律权能缺位严重,对权利主体的保护效能明显不足,反过来又大大制约了其制度功能的有效发挥。变革的目标就是要在纯化土地承包经营权制度功能的同时,最大限度地实现其作为独立物权的各项法律权能,将土地承包经营权真正打造成具有确定法律含义和健全权能体系的民事权利。这种功能转型和权能实现不仅是还原土地承包经营权之独立物权属性的客观基础,也是农村社会管理创新的应有之义。

Overloaded institutional functions and absence of capacity for right are the two most prominent problems in the current system of right to land contractual management in China. In order to satisfy the diversified interest demands of the state, society, collectives and individuals, the relevant laws and policies have imposed numerous and extensive political, social and economic functions on the right to land contractual management. The different value objectives of these institutional functions have inevitably led to structural conflicts between them, which further aggravate the structural tension in rural areas and serious overload the system of the fight to land contractual management. On the other hand, there is a serious lack of concrete capacity for the right to land contractual management in substantive law, in procedural law, as well as in special law, resulting in insufficient protection of subjects of rights, which, in turn, seriously impedes the realization of the institutional functions of this right. The main objectives of the reform of the system of the right to land contractual management should be ： to purify the institutional functions of the right, to realize to the maximum extent possible various legal capacities for the right to land contractual management as an independent real right, and to make it a civil law right with definite legal meaning and a complete system of capacities for right.This functional transformation and realization of right capacities is not only the objective basis for restoring the true nature of the right to land contractual management as an independent real right, but also the essence of innovative rural social management.