论划拨土地使用权转让之效力

A Study on the Validity of the Transfer Of Allocated Land Use Rights

近年来,由于城市建设用地越来越少,划拨土地大量入市不可避免,划拨土地使用权转让制度逐渐成为事关经济社会发展的重大法律议题。国家对划拨土地的管制,经历了从禁止非法转让到依法转让的过程。划拨土地使用权转让的交易结构包含划拨土地使用权转让合同和国有土地使用权出让合同两种合同关系。批准转让的政府与受让人签订出让合同,受让人补缴土地出让金,皆系对转让合同的履行,但是否缴纳土地出让金不影响划拨土地使用权转让合同的效力。未经批准之划拨土地使用权转让合同效力存在无效、有效和未生效三种可能样态。行政主管机关的审批不宜与划拨土地使用权转让合同的效力绑定。未经批准之划拨土地使用权转让合同不宜再被认定为无效。土地增值易引发转让人撕毁合同的道德风险,认定合同未生效不利于对受让人合同履行可得利益的保护。合同有效与合同履行应相区分,认定合同有效系最佳选择,能兼顾管制与自治,平衡当事人利益冲突。

In recent years,a large number of allocated land use rights have entered the market as an inevitable result of decreasing urban construction land.The transfer system of allocated land use rights has gradually become a major legal issue concerning economic and social development.The state’s regulation of allocated land use rights has experienced a process from prohibiting illegal transfer to recognizing legal transfer.The transaction structure for allocated land use rights includes two contracts for allocated land use right transfer and state-owned land use right transfer.Signing the contract for the transfer of state-owned land use rights and paying the land transfer fee is the performance of the transfer contract.Whether the land transfer fee is paid or not does not affect the validity of the contract for the transfer of allocated land use rights.The validity of the unapproved transfer contract of allocated land use rights may be invalid,valid and unenforced.The administrative department ’s examination and approval of the contract should not be bound with the validity of the contract for the transfer of allocated land use rights.An unapproved contract for the transfer of allocated land use rights should no longer be deemed invalid.Land appreciation may easily induce the transferor to tear up the contract,which is not conducive to the protection of the expected interests of the transferee.Contract validity and contract performance should be distinguished.Recognizing the validity of the contract is the best choice with consideration to regulation and autonomy and for the balance of the conflict of interests between the parties.