中国法语境下土地开发权归属及类型的法理研判

Legal Judgments of Ownership and Types of Land Development Rights Under Chinese Law Context

土地管理权的行使,其本质是土地开发权如何分配的过程。借助于土地开发权的配置或变动,来实现国土空间资源优化配置的目标,是政府土地管理手段和内容的实质体现。实证法上,我国践行土地开发权国家独占的归属模式,存在诸多弊病,亟需改革。立足国土资源治理目标有效实现的角度,在应然层面,我国应实行城市土地开发权归国家所有,农村集体土地开发权归集体土地使用权人所有的"双轨"模式。在这一基础上,基于类型化方法,我国土地开发权应分为城市建设用地开发权、承包地开发权、宅基地开发权和集体建设用地开发权(具体又分集体公益性建设用地开发权和集体经营性建设用地开发权)四种类型。当下的土地用途管制、土地征收和土地开发许可制度改革以及集体经营性建设用地市场交易制度的建设等,须以土地开发权为改革的切入口,并纳入到土地开发权制度平台上展开理论对话和制度建设。

The nature of exercising land management rights is the process of how to allocate the land development rights. Achieving the goal of optimal allocation of land and space resources by means of the configuration or change of the land development rights is the substantial reflection of the government＇s means and contents of land management. There are many shortcomings existing in our country＇s land development rights in law,and we should reform the model. Based on the standpoint of the effective implementation of the objectives in land resource management,our country ought to implement the ＂two-track＂model that the development rights of urban land should be owned by the state,while the development rights of rural collective land ought to be collectively owned by the land users. On this basis,our land development rights should be divided into four different types,namely urban construction land development rights,contracted land development rights,homestead development rights and the collective construction land development rights. At present,we shall let land development rights as the entry point of the reform of control of land use,the reform of land acquisition and land development permit system and the construction of market trading system of collective management land,etc.,and expand theory dialogue and institution building on the system platform of land development rights.