“三权分置”下集体土地所有权的立法表达

Legislative Expression of Collective Land Ownership Under “Separation of Three Rights”

植根于"两权分离"的集体土地所有权法律制度已经难以满足"三权分置"下的农地改革实践,集体土地所有权基本构造体系的缺陷集中体现在:权利属性与权利主体的模糊性;行使主体与行使机制的不健全;权能体系和保障机制欠缺。未来立法应该在坚持农村土地集体所有的基础上,对集体土地所有权基本构造体系与农民集体成员权综合治理体系进行科学的立法表达。完善集体土地所有权基本构造体系需要:明确特定社区范围内的成员集体是集体土地所有权的权利主体;明晰农村集体经济组织是集体土地所有权的代表行使主体;丰富集体土地所有权的权能体系。农民集体成员权是克服集体土地所有权制度缺陷的重要设计,建构其综合治理体系应该在理论上厘清农村集体土地所有权与农民集体成员权之间的关系,设计出科学可行的集体成员身份认定标准,丰富农民集体成员权利体系,健全农民集体成员权利行使规则与救济规则。

The legal system of collective land ownership, rooted in the separation of the two rights, has been difficult to meet the practice of agricultural land reform under the “Separation of Three Rights”. The defects of the basic structure system of collective land ownership are mainly embodied in the fuzziness of the right attribute and the right subject, the imperfection of the exercising subject and the exercising mechanism, and the deficiency of the power system and the guarantee mechanism. The future legislation should be based on the adherence to the collective ownership of rural land, and scientific legislative expression of the basic structure system of collective land ownership and the comprehensive management system of collective membership rights. To perfect the basic structure system of collective land ownership, it is necessary to clarify that the member collective within a specific community is the right subject of collective land ownership, to clarify that the rural collective economic organization is the representative exercising subject of collective land ownership, and to enrich the power system of collective land ownership. Farmers’ collective membership is an important design to overcome the defects of collective land ownership system. We should theoretically clarify the relationship between rural collective land ownership and peasants’ collective membership rights, design scientific and feasible criteria for identifying collective members, enrich peasants’ collective membership rights and improve peasants’ collective membership rights, and improve exercise rules and relief rules.