土地公有制对农村经营性建设用地入市改革的底线规制

The Bottom Line Regulation of Land Public Ownership on the Reform of Market Entry of Rural Commercial Construction Land

将物权法作为相关改革的法律底线,根据"物权平等保护"等私法原则,得出国有与集体建设用地的同等性结论的推导,不具有真正的底线意义。维护土地增值收益初次分配社会共享、坚持以耕者有其田为目的的农村劳动群众集体所有制,是宪法为农村经营性建设用地入市改革设定的底线。土地全民所有与农民集体所有具有迥然不同的,实现土地利益公共分享的制度功能。不存在私法视阈中,土地的国家所有权与农民集体所有权、国有建设用地使用权与集体建设用地使用权被概然性、无条件地"平等""同权"对待的正当性。应确保集体土地"征收—出让"利用模式与农村经营性建设用地入市私法路径之间的主辅关系。农村经营性建设用地流转目的只能是与农业发展直接相关的第二、三产业项目。防止农村集体经济组织随意整合农村土地配置,侵害各类农村土地使用权的违法行为。

Even if the principle "equal protection of real rights" exists in property law, the opinion that "state-owned and collective construction land are equal" drawn from it should not be taken as the real bottom line of relevant reforms. In fact, safeguarding the society’s sharing of the initial distribution of land value-added benefits and adhering to the collective ownership of rural working people are the bottom lines set by the constitution for the reform of market entry of rural commercial construction land. The functions of national ownership and farmers’ collective ownership of land are different in realizing public sharing of land benefits. In private law, it is improper to regard the state ownership of land and the farmers’ collective ownership of land, the use right of state-owned construction land and the use right of collective construction land as completely equal. We should ensure the principal-subsidiary relationship between the "expropriation-transfer" utilization mode of collective land and the private law route of market entry of the rural commercial construction land. The purpose of rural commercial construction land transfer can only be serving secondary and tertiary industry projects directly related to agricultural development. Rural collective economic organizations should be prevented from arbitrarily integrating rural land allocation and infringing various types of rural land use rights.