建设用地国有制的逻辑、挑战及变革
徐键建设用地国有制的逻辑、挑战及变革
State Ownership of Construction Land:Logic,Challenges and Reform
期刊名称：《法学研究》
期刊年份：
作者：徐键
单位：上海财经大学法学院
中文关键词：土地公有制;建设用地;权力性支配;集体所有土地
英文关键词：public ownership of land;construction land;power domination;collectively-owned land
中文摘要：
在计划经济和人民公社体制下，全民所有制和集体所有制承载了城乡土地资源的权力性支配职能，以此形成了城乡二元的建设用地使用和管理制度。人民公社体制消解及计划经济体制转型后，集体所有制的权力性支配取向与国家意志产生了偏离，农村地区乱占滥用耕地的现象愈渐严重。在规约土地利用和土地资源市场化配置的社会性管制制度无法快速形成的情况下，权力性支配框架得以延续并得到改造，原本由全民所有制和集体所有制分别承载的权力性支配职能被集中于全民所有制，由此确立了建设用地国有制。建设用地国有制的实现依赖于征收，但计划经济体制下基于"国家需要"的征收正当化论述，无法容纳市场经济体制下的"市场需要"和"个人需要"，产生了征地正当性的疑问。权力性支配的逻辑也与市场逻辑相背离。在土地使用制度改革中，应当剥离所有制的权力性支配职能；土地公有的公共职能则应聚焦于居住权的保障和土地收益的分配。
英文摘要：
Under the planned economy and the people's commune system, ownership by the whole people's and collective ownership performed the power domination function of administration of land resources in urban and rural areas, thus forming the system of urban-rural dualistic use and management of construction land. With the collapse of the people's commune system and the transformation of the planned economic system, the objective of collective ownership is gradually deviating from the interests of the highest public authority and the phenomenon of abuse of cultivated land in rural areas is becoming more and more serious. In order to achieve the rational use of land and ensure that the reforms are in line with socialist goals, the power domination function of public ownership is transferred into the ownership by the whole people, thus establishing the state ownership of construction land. The state ownership of construction land depends on land expropriation, but the "national needs" theory under the planned economy system can no longer explain the "market needs" under the market economy system, thus resulting in the contradiction between the public interest of land expropriation and the mercerization of land use. In order to coordinate the relationship between socialist market economy and socialist public ownership, China should divest the power domination function of the public ownership, construct the land use order through "market-regulation", and focus the functions of public ownership of land on the protection of the right of residence and the equitable distribution of land value-added benefits.
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