关键词：三权分置;权利结构;权能属性;农村土地承包法

摘 要：农地“三权分置”制度改革是我国深化农村改革的重要内容和举措，对我国农业向立体复合型的现代农业进一步转变具有深远意义。2018年底对《中华人民共和国农村土地承包法》的修订，为三权分置政策的法律化搭建了基本框架，以保障政策的有效实施。从本次修订所呈现的结果看，对于土地承包经营权向土地承包权和土地经营权派生过程的表述带有“权利束”的理论痕迹，与我国所遵循的“物权法定”“一物一权”物权法体系相背离，“三权分置”土地结构中实际存在了四项未能清晰有效界定权利属性与关系的土地权利，对土地流转和农业现代化建设形成阻碍，与政策和法律的制定目的相背离。本文以新修订的《土地承包法》为基准，结合理论与现实实践，对土地权利关系和存在的法理冲突进行阐述和辨析，探索三权分置农地产权制度改革的可行实现路径。

中图分类号：F320.2文献标志码：A文章编号：1001-2435（2020）02-0140-09

The Disputes of Agricultural Land System in China：The Relationship of Rights，the Conflict of Legal Principles and the Solutions in the “Three-Right Separation”

LIU Yu-hong，YANG Kai-yue（School of Economics，Tianjin University of Commerce，Tianjin 300134，China）

Key words：three-right separation;right structure;right attribute;Rural Land Contract Law

Abstract：The system reform of “Three Rights Separation” of agricultural land is an important content and measure to deepen the rural reform in China，which has a far-reaching significance for the further transformation of Chinas agriculture to the three-dimensional compound modern agriculture. At the end of 2018，the revision of the “Rural Land Contract Law of the China” set up a basic framework for the legalization of the three rights separation policy to ensure the effective implementation of the policy. According to the results of this revision，the theoretical traces of “right bundle” in the derivative process of the right of contracted management of land deviate from the property law system of “legal property right” and “one thing one right” followed by our country，and there are actually four items in the land structure of “separation of three rights” that fail to clearly and effectively define the land right in terms of attribute and relationship，which hinders the land circulation and the construction of agricultural modernization，deviating from the purpose of policy and law making. Based on the newly revised Land Contract Law，combined with the theory and practice，this paper expounds and analyzes the relationship between land rights and the existing legal conflicts，and explores the feasible path to realize the reform of the property right system of the three right separation in agricultural land.

一、前 言

我国作为农业大国，土地问题始终是关系经济社会发展的关键性问题。农村土地问题能否有效解决，不仅关系到传统农业向产业化、规模化的现代农业转变和发展，更關乎国家粮食安全和社会稳定。因而，农地产权制度改革被认为是我国农业发展，尤其是农业内生发展的重要决定因素，是实现乡村振兴的重要制度保障。[1]我国农地产权制度的改革历程是一个将土地产权先“集中”后“分解”的过程，作为当前既定政策的“三权分置”，毫无疑问是现阶段深化农村改革的重要内容和制度创新的重要举措。……