国有建设用地使用权配置体系:权能、特征与适用场景

Rights contents,characteristics and applicable scenarios of the allocation system of state-owned construction land use rights

运用政策分析、比较研究和归纳演绎等方法辨析国有建设用地使用权各类配置方式的法理、经济机理、权能和适宜性,结果表明:新时期国有建设用地使用权配置体系包含四类基础配置方式,各类配置方式的法律和经济性质决定了其用益物权和担保物权的差异。四类基础配置方式在所有者权益保障力度、市场化程度、土地集约利用有利度等方面各具特征。从公益性—营利性的角度将土地利用划分为六类场景,国有建设用地使用权配置方式在不同场景中的优先适用度不同。完善国有建设用地配置体系应坚持物权法定原则,统一权能,明确适用情景,放活组合方式,强化土地配置与储备、供应、利用的衔接,以填补配套机制缺位。

Using the methods of policy analysis,comparative research and inductive deduction,this paper discriminates the legal and economic mechanism of different state-owned construction land use rights allocation forms,and compares their characteristics,rights contents and applicable scenarios.The results show that the state-owned construction land use rights allocation system in the new era should include four basic allocation methods,and the legal and economic nature of various allocation methods determines the differences between usufructuary right and security right.The four types of basic allocation methods have their own characteristics in terms of the protection of owners’rights and interests,the degree of marketization,the advantage of intensive land use and so on.From the perspective of public welfare or profitability,land use is divided into six scenarios.The priority and applicability of the allocation mode of urban state-owned construction land use rights are different in different scenarios.Improving the state-owned construction land allocation system should speed up the legal realization of property rights,clarify the application scenarios,straighten out the land rights“principal-agent”relationship and the connection relationship between land allocation,reserve,transfer and development,and fill the supporting mechanism vacancy.