农村集体土地“三权分置”普遍性问题及其立法应对

Typical Issues on “Separation of the Three Rights” of Rural Collective Land and Relevant Legislative Strategy

前'三权分置'时期,农村集体土地制度的主要缺陷表现为所有权虚化、使用权体系失调、融资担保权能缺失。土地未流转状态下的所有权层面找准'农民集体'的依托,土地流转状态下的使用权层面分类优化配置权利,土地融资状态下的担保权层面放活权能,是立法上应对'三权分置'普遍性问题面临的挑战。最新立法沿袭农村集体土地所有权多元'代理人'模式,但从长远看'代理人'一元化确有必要。使用权分类优化和系统整合方面,承包地'土地经营权'物权化已迈出关键一步,为确立其为新的物权类型预留了空间。宅基地立法相对滞后,应当抓住民法典编撰以及土地管理法修订的历史机遇,侧重以公法规制权利配给,以私法调整权利流转,构建与宅基地重要性相匹配的健全规范体系。当前,对农村集体土地融资担保的立法探索关键在于创设一种科学的担保权利实现方式。

The defects of rural collective land system in pre-period of'separation of the three rights'are mainly manifested as thevirtual ownership of rural collective land,the uncoordinated system of rights to use rural collective land,and lack of rights to guar-antee financing by rural collective land.Legislation of'separation of the three rights'will face the following challenges:choosingproper agent for'farmer collective'in the domain of ownership;optimizing the allocation of the right to use rural collective land ac-cording to different types;deregulating hypothecation of rural collective land.The new legislation follows the old system of multiple'agents'of rural collective land ownership,but in the long run it is necessary for'agents'to be unified.In terms of classificationoptimization and system integration about rural collective land,the right in rem evolution of'land management right'has taken akey step and reserved legislative space for establishing it as a new type of right in rem.Rural homestead legislation is relatively lag-ging behind.It is necessary to seize the historical opportunity of the compilation of civil code and the revision of land managementlaw,build a sound normative system matching the importance of rural homestead.To regulate the distribution of rural homesteadrights by public law mainly,to regulate the circulation of rights by private law mainly.At present,the legislative discussion on thefinancing guarantee of rural collective land is not whether to do it,but how to do it.The key is to create a scientific way to imple-ment hypothecation of rural collective land.