我国农村土地法律制度变革的思路与框架——十八届三中全会《决定》相关内容解读

中国共产党十八届三中全会《关于全面深化改革若干重大问题的决定》被视为新一轮农村制度改革的政治宣言,同时也应接受法学的审视。农村土地法律制度变革的基础在于"三个坚持",重心在于增加农民的财产性收入,亮点在于通过有效利用集体与农民财产自身的增值功能实现农民收入的持续增长,突破和创新点在于保障农民有机会公平分享土地增值收益,以及赋予农民更多更实际的财产权益。当然,《决定》将物权性质的土地承包经营权解释为独立的经营债权和承包物权而允许设定抵押担保的仅为经营权,以及通过赋予农民房屋所有权处分权能而保留宅基地使用权的房地分离的制度创新,有待辨析。农村土地法律制度变革的观念应是坚持法治原则的底线思维,坚持农民主体地位和保护农民利益的权利本位思维,坚持以整体性思考为工具、以构建权利制度为目标的体系化思维;逻辑进路应是农村土地权利体系化。农村土地法律制度变革的制度框架应包括:完善集体土地所有权,合理设定土地承包经营权和集体成员房屋财产权的处分条件,建立集体经营性建设用地入市的民法规则,通过立法建立集体成员权制度并为农村土地股份合作社运行提供依据,还赋集体土地征收补偿之权利。

Thinking and Framework of Reform of Rural Land Law System in China

The Decision of the Central Committee of the Communist Party of China on Some Major Issues Concerning Comprehensively Deepening the Reform is considered to be the political declaration on a new round of rural reform, which, at the same time, should also be subjected to scrutiny from the legal point of view. The foundation of the reform of the rural land law system takes the "three adherences" as its foundation, the increase of farmers'' property income as its focus, the achievement of sustained growth of farmers'' income by effectively using collective property and giving full play to value-added functions of farmers'' properties as its highlight, and the guarantee of farmers'' fair share of the value-added benefits of land and granting farmers more actual property rights as its breakthrough and innovative points. The Decision interprets the land contract and management right, which is a real right in nature, as an independent management obligatory right and contracted real right, thereby allowing mortgage and security to be set only on the management right. Meanwhile, it establishes the system of separation of houses from land by granting farmers the right to dispose of their houses while denying them the right to utilize the homestead. Of course, these innovative measures are open to debate. The author of this article maintains that, in the reform of rural land law system, China should adhere to the principle of the rule of law, to the rights-oriented thinking of protecting farmers'' principal status and interests, to the holistic and systematic thinking of taking the construction of the right system as the goal, and to the logical approach of systematization of rural land rights.