农村集体经济组织准成员制度的立法指向与规范构造--兼评《农村集体经济组织法(草案)》第16条

Legislative Direction and Normative Structure of the Semi-membership System of Rural Collective Economic Organizations and Comments on Article 16 of the Rural Collective Economic Organizations Law(Draft)

研究目的:探析农村集体经济组织准成员制度的应然目的,并厘清准成员的群体定位、认定规范与权利构造。研究方法:规范分析法。研究结果:准成员制度不是集体基本保障功能的延伸,而是服务乡村振兴战略的“人才引入”、助力农村地权制度科学化的功能制度。准成员群体定位不应如《农村集体经济组织法(草案)》第16条所局限,而宜以非集体成员中的产业农民与乡土成员群体为核心;其认定规范宜构造为逐级具象的多层次规范体系,且应设置准成员登记簿与权利附注规范。在准成员权利构造上,不仅应排除集体成员专属的土地权利,还应排除所有以集体地权为基础之收益的分配权;结合宅基地“三权分置”指引,宜赋予准成员有偿取得附期限与义务之新型宅基地使用权的资格。研究结论:创设准成员制度可使集体经济组织制度更加周延,但制度设计的科学性不足,立法应予完善。

The purpose of this paper is to explore the desirable purpose of the semi-membership system of rural collective economic organizations to clarify the group positioning,norms of identification and the construction of rights of the semi-members.The research method is normative analysis.The results show that the semi-membership system is not an extension of the basic protection function of the collective,but a functional system that serves the strategy of rural revitalization by“introducing talents”and contributes to the scientific reconstruction of rural land rights system.The group of semi-members should not be limited by the Article 16 of the Rural Collective Economic Organizations Law(Draft),but should focus on the industrial farmers and rural members without collective membership status.The norms for the identification of semi-members should be structured into a multi-level normative system with hierarchical concreteness,and contain a registration of semi-members with a statement of rights.In terms of the structure of the semimembers’rights,the exclusive land rights of collective members and the right to distribution of all proceeds based on collective land rights should be excluded.Combined with the guidelines on the tripartite entitlement system of rural residential land,the semi-members should be granted with the qualification to obtain the right to use rural land as a residential plot with duration and obligations in return.It concludes that the creation of an semi-membership system can make the collective economic organization system more comprehensive,but the scientific design of the system is insufficient and should be improved in the legislation.