储备土地抵押权民法困境的产生与解决——兼论行政立法与民事立法的冲突与调和

Conflict and Compromise between Administrative Legislation and Civil Legislation:Starting from the Civil Law Dilemma of Mortgage of Reserved Land

储备土地抵押是在城镇化进程中广泛运用的地方债务融资工具,但是该抵押权却存在两个问题:客体在现行民法上于法无据,主体不享有抵押物的处分权。由此该抵押权落入一个民法解释论上的理论困境。该困境产生的背景是法律制度的演进和公私法域交汇,直接原因在行政立法中是部门本位与知识限制,在民事立法中是体系封闭与对中国特色土地物权制度的准备不足。走出该困境需要行政立法中合理分配储备机构与国土部门间的权利,民事立法中将储备土地使用权纳入物权体系。该困境源头在于行政立法对民法规范的侵犯与扩展,而彻底防止此类困境需要行政立法时更加细致,民事立法时更加开放。

Mortgage of reserved land is a widely used debt financing instruments of local government. The mortgage embedded with two problems：the object of mortgage is invalid in current civil law,the subject of mortgage doesn＇t enjoy dispositive right.These two problems trap the mortgage into the di- lemma of civil law interpretation.The background of dilemma is the evolution of legal system and the mergence of the public law and civil law.The direct reason of dilemma in public law is the departmen- talism and the limited knowledge, while the reason in civil law is the systematic closure and the inade- quate preparation of land rights system with Chinese characteristics.To get out of dilemma needs rea- sonable distribution of rights between land reserve agencies and resources departments.It also needs to incorporate the right of reserved lands into the real rights system.To completely prevent the re-appari- tion of these dilemma which the administrative legislation infringes the civil legislation, we need a more meticulous administrative legislation,and a more open minded civil law legislation.