集体建设用地使用权设立制度的优化逻辑与规范续造

Optimization Logic and Normative Continuation for the Institutional Establishment of Collective-owned Construction Land Use Right

研究目的:释明设立制度在促进集体土地所有权行使、集体建设用地使用权创设、集体土地规划管理权三者协同方面的重要功能,对《土地管理法》增设的集体建设用地使用权设立制度进行立法完善。研究方法:文本分析,规范解释,价值分析。研究结果:现行设立制度存在单一“经营性”窄化集体建设用地使用权设权谱系、从严用途管制模式下集体所有权对土地用途的自调节功能受限、设立行为实施主体和土地供应标准模糊、设立方式的制度供给粗疏等问题,需要完成从“资源保障”到“资产效益”的法律调控转型。研究结论:有必要确立收缩土地规划管理权和扩张集体财产权的理论方案,扩展设立类型以形成“经营性、公益性、居住性”的集体建设用地使用权谱系,提升设立环节规划用途管理与农村产业发展的相容性,确立委托关系下的具体实施主体和净地供应的客体标准,增扩设立方式的制度供给以弥合现行出让规则的局限。

The purposes of this paper are to explain the important coordination function of the institutional establishment in promoting the exercise of collective-owned land ownership,the creation of collective-owned construction land use right,the collective-owned land planning and management rights,and to make legislative improvements in the institutional establishment of collective-owned construction land that has been added to the Land Management Law.The research methods include content analysis,normative interpretation and value analysis.The results show that the current institutional establishment has some problems,including the single“operation”narrowing the establishment right spectrum of collective-owned construction land use right,the limited self-regulation function of collective ownership on land use under the mode of strict use control,the ambiguous subject of establishment behavior and land supply standard,and the inadequate institutional supply of establishment mode.The legal adjustment of collective land needs to shift from“resource security”to“asset effectiveness”.In conclusion,it is necessary to establish a theoretical plan to shrink land planning rights and expand the operating boundary of collective property rights,to expand the types of establishment to form a“commercial,public welfare and residential”spectrum.The compatibility between the planning use management and the development of rural industries should be improved.The specific implementation subject and the object standard of net land supply should be established under the entrusting relationship.The institutional establishment supply mode should be expanded to eliminate the limitations of the current transfer rules.