农垦“两田制”变化与农用地权利体系重构——国有与集体两类农用地比较的视角

The Change of“Two-field System”of Agricultural Reclamation and the Reconstruction of Agricultural Land Rights System:A Comparative Perspective of State-owned and Collective Agricultural Land

本文以安徽农垦为例,分析了农垦“两田制”的变化:身份田承包经营权因流转回农场而呈现价值化或股份化,身份田向招标田与农场统一经营田转化,招标田租赁权短期化。农垦“两田制”变化,因强化农场公司制规模经营,将引领农垦国有农用地权利体系重构为“所有权+农场国有农用地使用权+股权+招标田租赁权”。其中,身份田承包经营权面积比较少且已价值化或股份化,不宜定性为用益物权;农场统一经营田之使用权即为农场国有农用地使用权,宜按照用益物权的性质进行制度构造;而招标田租赁权因期限短、支配性弱,宜定性为债权。这一变化不同于集体农用地“三权分置”之“所有权+土地承包经营权+土地经营权”的延长权利链思路,会启迪宜强化“所有权+股权+以其他方式承包之土地经营权”的实施路径,并为重构集体农用地“三权分置”权利体系提供示范。

Taking Anhui agricultural reclamation as an example,this article analyzes the change of“two-field system”of farmland:the contracted management right of identity fields has become valued or demutualized in the process of land transfer back to farms,identity fields have transformed into bidding fields and unified management fields of farms,and the lease right of the bidding field has become short-term.The change of the“two-field system”in agricultural reclamation will lead the reconstruction of the state-owned agricultural land rights system into“ownership+use right of state-owned agricultural land of farm+equity+leasehold for bidding field”due to the strengthening of scale operation of the farm company system.Among them,the contracted management right of identity field is relatively small in area and has been valued or demutualized,which is not suitable to be defined as usufructuary right;the use right of unified management field of farm is the use right of state-owned agricultural land of farm,which should be structured according to the nature of usufructuary right;and the lease right of bidding field should be defined as creditor’s right due to its short term and weak dominance.This change is different from the idea of extending the right chain of“ownership+land contractual management right+land management right”of“three-rights separation”of collective agricultural land.It will enlighten the implementation path of“ownership+equity+land management right contracted in other ways”and provide a demonstration for reconstructing the right system of“three-rights separation”of collective agricultural land.