“三权分置”改革回顾、研究综述及立法展望--以农村集体土地权利体系的分层解构为视角

Review of the reform,research summary and legislative prospect of “division of three rights”: From the perspective of the hierarchical deconstruction of rural collective land rights system

"三权分置"思想发端于承包地,而后针对宅基地阐发,体现出在农村集体土地制度全局改革中的理论兼容和制度弹性。当前,"三权分置"研究呈现块状化特点,有必要开启全景视角,审视和应对推行"三权分置"可能遇到的普遍性问题。为此,可在自物权和他物权二分的基础上,将农村集体土地权利体系再解构为所有权、使用权(用益权)、担保权三个层次,结合对承包地、宅基地、集体建设用地三类主要农村集体土地特殊性的分析,提炼能够反映、重构和化简农村集体土地生产关系复杂性的立法思路。具体而言,所有权是原权利,农村集体土地的次级权利和各项权能均由其衍生。作为次级权利,使用权的实现包括初次分配和复次流转两种形态。担保权是次级权利的延伸,其存在基础是使用权的可流转性。立法远景中,农村集体土地所有权人的"代理人"均应逐渐过渡为一元化,国家应克制对所有权的僭越以及垄断同类土地市场的冲动,方能使农村集体土地所有权制度名实相副。农村集体土地使用权的立法和实践经验表明,复次流转制度设计的关键在于去身份化和对价化;通过物权化方式保护复次流转取得的权利是可行路径,使用权流转的行政管制逐步退出是大势所趋。若以强化农村集体土地的担保属性为立法意旨,则其复次流转取得权利的物权化立法方向务必坚持,今后立法的关键在于创设符合规律的、科学的担保权利实现方式。

The thought of "division of three rights" originated from contracted farm land and then elaborated on rural homestead,reflecting the theoretical compatibility and institutional flexibility in the overall reform of rural collective land system.At present,the legislative research on "division of three rights" presents blocky characteristics.It is necessary to open a panoramic perspective to examine and deal with the general problems that may be encountered in the implementation of "division of three rights".Therefore,the system of collective rural land rights could be reconfigured into three levels of ownership,use right(usufructuary right) and the right of guaranteebased on the dichotomy between right to right of self-property and right of others-property.,and it could combine with the the analysis of the particularity of rural collective land,mainly including contracted land,house sites,collective construction land,,to refine legislative ideas that reflect,restructure and simplify the complexity of collective rural land production relations.Specifically,ownership is the original right,and the secondary rights and powers of rural collective land are derived from it.As a secondary right,the realization of the right of use includes two forms: primary distribution and secondary circulation.Security right is the extension of secondary right and its basis is the circulation of right of use.In the legislative perspective,the "agents" of the rural collective land owners should gradually become unified,the public power should gradually withdraw from the usurpation of the rural collective land ownership,and restrain the impulse to monopolize the similar land market,so as to make the rural collective land ownership system nominal and real.The legislative experience of the right to the use of rural collective land shows that the key to the design of the circulation system is de-identification and consideration.It is a feasible idea to protect the rights acquired in the circulation by means of real right,and it is a general trend that public power gradually withdraw from the control of the circulation of the right to use.If strengthening the guarantee property of rural collective land is the legislative intention,the real right legislation direction of the second circulation of the acquired right must be adhered to.