论土地使用权转让的《宪法》秩序——《土地管理法(修正案)》(征求意见稿)评析

On Land Use Right Transfer from the Perspective of the Constitution——analysis of Land Management Law(amended version,exposure draft)

集体土地能否入市是当下我国土地制度改革中分歧最大的一点。如何理解"土地的使用权可以依照法律的规定转让"的《宪法》条款,对于正确推进土地制度改革意义重大。《土地管理法(修正案)》(征求意见稿)增加集体经营性建设用地入市内容的目的在于,解决特殊时期形成的历史遗留问题。这是对现行制度的补充而非突破,集体经营性建设用地必须在非常严格的限制条件下入市。修订《土地管理法》须秉承1998年《土地管理法》控制集体土地入市的制度精神,避免产生新增的集体经营性土地。

Whether collective land can be traded at the market has become the most controversial topic in Chinese land system reform. One article in the Constitution states, ＂Land use rights may be transferred according to legal regulations.＂How to interpret this article is of great significance to properly promote the land system reform. A supplement has been added to the Land Management Law(amended version,exposure draft） to allow commercial collective construction land to trade at the market. The purpose of the supplement is to address unsolved problems in history. It is an addition to rather than a breakthrough in the existing system. Commercial collective construction land must trade at the market under severe restrictive conditions. The revision of the Land Management Law must stick to the spirit of the 1998 Land Management Law to control the trade of collective land at the market so as to avoid increase in commercial collective land.