“两权”分离视角下权益性国有土地临时使用制度的立法完善  

Legislative Improvement of the Equity Temporary Use System of State-owned Land from the Perspective of Separating the"Two Rights"

作　　者：韩英夫 Han Yingfu

机构地区：[1]辽宁大学法学院

出　　处：《中国不动产法研究》2024年第2期185-199,315,316,共17页Research on Real Estate Law of China

基　　金：国家社科基金青年项目“生态文明视域下自然资源统一确权登记制度研究”(21CFX047)的阶段性成果。

摘　　要：当前以《土地管理法》为中心构建的国有土地临时使用制度奉行“非必要不启用”的被动性资源调配规则,具有典型的行政监管制度属性。在实施过程中面临行政路径挤占民事路径、缺失有别于民事租赁的临时使用独立规则、制度定位模糊导致与正式供地制度衔接不畅等问题,无法满足土地资源的资产化利用需求,造成国家所有者权益流失。因应土地资源管理中行政监管权和国家所有权“适度”分离的改革趋势,应遵循“以用为先”和“不阻滞正式供地”的基本原则,增设所有者权益导向的临时使用制度。该制度的功能定位是土地资源全过程管理中,以在库未供出和供出后闲置土地为对象的盘活措施。有必要以特别立法设置管护型、过渡型和盘活型的临时使用的法定类型,并从启动条件、使用期限和对价、消灭事由、责任救济及效力认定等方面构建特殊规则。The temporary use of state-owned land,centered on the Land Management Law,pursues the passive resource allocation rule of"not activated unless necessary",which has the typical attributes of administrative supervision systems.In the process of implementation,it faces problems such as the administrative path encroaching on the civil path,the lack of independent rules for temporary use that are different from civil leases,and the poor connection with the formal land supply system due to the ambiguity of the system's positioning,which fails to meet the demand for asset-based utilization of land resources and results in the loss of the rights and interests of the State's owners.In response to the reform trend of"moderate"separation of administrative supervision power and state ownership in land resource management,the basic principles of"giving priority to use"and"not blocking formal land supply"should be followed,and a new system of owner's interest-oriented temporary use should be established.The function orientation of the system is positioned as a revitalization measure targeting unprovided land in the inventory and post-provisioned idle land in the overall management of land resources.It is necessary to set up the legal types of temporary use of custody,transition and revitalization by means of special legislation,and to construct special rules in terms of the conditions of activation,the duration of use and consideration,the causes of extinction,the remedies of liability and the determination of validity.

关 键 词：临时使用 国家土地所有权 行政监管权 土地租赁 

分 类 号：D923.2[政治法律—民商法学] D922.33[政治法律—法学]