农村土地“三权分置”:功能作用、权能划分与制度构建

“Division of Three Rights”of Rural Land: the Function,Right Content and System Construction

实行农村土地所有权、承包权和经营权"三权分置"是我国农村土地制度新一轮改革的基本方向,但如何界定分置后"三权"之间的权利关系并据此进行相关制度构建仍是亟待解决的问题。本文从农村土地"三权分置"的政策背景和概念内涵入手,重释了农村土地"三权分置"产生的功能价值,并在探讨承包权与经营权权能划分的基础上提出推行农村土地"三权分置"改革的制度构建建议。研究认为:以土地承包经营权分离成土地承包权和经营权为核心内容,农村土地"三权分置"可实现从要素、主体、制度、价值等四个层面释放出此次农村土改的"改革红利"。从土地承包权与经营权再分离的功能目的入手,应将土地承包权和经营权二者的性质界定为用益物权,并将二者的权利内容划分为:土地承包权主要包括占有权、收益权、继承权和退出权,土地经营权主要包括占有权、使用权、收益权和处分权。据此,在进行农村土地"三权分置"制度构建时,一个根本前提是立足我国国情和农村实际,并严格坚持一定的基本原则和底线,进而一方面要通过修改调整《农村土地承包法》、《土地管理法》、《物权法》、《担保法》等相关法律法规,做到赋予土地承包权和经营权以法律地位、分别设置土地承包权和经营权的流转规则以及为土地经营权抵押提供法律依据。另一方面要加强有关政策设计与配套,具体包括建立健全土地承包权和经营权的流转规范机制、构建土地经营权抵押实现机制、建立土地承包权与经营权分离的利益协调机制、构建土地承包权与经营权分离的风险防范机制等。

Carrying out the reform of the ‘division of ownership,contract and management rights＇ of rural land is the fundamental direction to the recent reform of rural land system in China. However,how to define the right relationship among the‘three rights＇ and then construct the system of the ‘division of three rights＇ of rural land is still a problem to be solved. This paper starts with the policy background and concept of the‘division of three rights＇ of rural land,and makes a new explanation of the function of the‘division of three rights＇ of rural land,and then puts forward some suggestions for constructing system of the‘division of three rights＇ of rural land based on the discussion on the property and content of land contract and management rights. The study shows that,the core of the‘division of three rights＇ of rural land is that rural land contractual management right is divided into land contract right and land management right,which can release a lot of function in elements,subjects,system and value. Based on the function and purpose orientation of division of land contract and management rights,we should take the property of land contract and management rights as a usufructuary and divide the right content of land contract and management rights as follows： land contract right mainly contains right of possession,right to earnings,inheritance right and exit right,and land use right mainly contains right of possession,right of use,right to earnings and right of disposition. According to this,constructing the system of the‘division of three rights＇ of rural land should be based on the national condition and rural real in China,and strictly adhere to some basic principles and bottom lines,which is a fundamental premise. On this basis,on the one hand,it should provide the land contract right and management right with legal status,set up land transfer rules for land contract right and management right respectively,and provide the mortgage of land management right with legal basis by modifying relevant laws including Law of Rural Land Contract,Law of Land Management,Law of Property,Guarantee Law,etc. On the other hand,it should strengthen policy design and policy support,such as establishing a standard mechanism for the transfer of land contract right and management right,constructing an implementation mechanism for the mortgage of land management right,establishing a mechanism of interest coordinated for the division of land contract right and management right,constructing a risk prevention mechanism for the division of land contract right and management right.