關键词：土地经营权;四荒地;土地承包经营权;以其他方式承包

摘 要：“四荒地”土地经营权是承包地“三权分置”的体系产物，但是《农村土地承包法》的结构体系化存在不彻底性，造成“四荒地”土地经营权流转规则的解释困难。“四荒地”土地经营权流转应区分设立环节和再流转环节。《农村土地承包法》第45条关于工商资本下乡的行政许可规则不宜类推适用于“四荒地”。登记是“四荒地”土地经营权的对抗要件而非设立要件。登记取得权属证书不是“四荒地”土地经营权再流转的效力性强制性规定。承包方将“四荒地”土地经营权向本集体外部再流转时，须经集体成员民主决议通过。转让不属于再流转方式，但属于“四荒地”土地经营权的处分方式。“四荒地”土地经营权抵押不以办理土地经营权登记为必要前提，其不能准用《农村土地承包法》第47条，应依据《民法典》的抵押权一般规则，采登记设立模式。

中图分类号：D912.3文献标志码：A文章编号：1001-2345（2021）02-0135-09

Interpretation of the Transfer Rules of Land Management Rights of “Four Kinds of the Wasteland”

WU Zhao-jun1，2（1.School of Land Science and Technology;2.Center for Land Policy and Law， China Agricultural University，Beijing 100193，China）

Key words：land management right;four kinds of the wasteland;land contract management right;contracting by other means

Abstract：The land management right of “four kinds of the wasteland” is the systematic product of the “separation of three rights” of contracted land. However，the structural systematization of the Rural Land Contract Law is not thorough，which makes it difficult to interpret the transfer rules of the “four wasteland” land management right. The circulation of the land management right of “four kinds of the wasteland” should be divided into establishment and recirculation. Article 45 of the Rural Land Contract Law on the administrative licensing rules of industrial and commercial capital to the countryside should not be applied to “four kinds of the wasteland” by analogy. Registration is the key element of the “four kinds of the wasteland” land management right，but not the establishment requirement. Registration and acquisition of ownership certificate is not a mandatory requirement for the recirculation of land management right of “four kinds of the wasteland”. When the contractor transfers the land management right of “four kinds of the wasteland” to the outside of the collective，it must be approved by collective members democratic resolution. The transfer does not belong to the way of recirculation，but belongs to the disposition of the land management right of “four kinds of the wasteland”. The mortgage of “four kinds of the the wasteland” land management rights are not based on the registration of land management rights，and Article 47 of the rural land contract law cannot be applied. The registration mode should be adopted according to the general rules of a mortgage in the civil code.

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一、问题的提出

《农村土地承包法》与《民法典》相继肯认并表达了农村承包地“三权分置”政策，承包地上的权利结构获得重塑，进入“两权”（土地所有权、土地承包经营权）与“三权”并存的阶段。农地“三权分置”指向的标的物是家庭承包经营的土地（以下简称“承包地”1），但是在政策入法过程中产生了体系效应：2018年《农村土地承包法》将原法中的“四荒地”上以其他方式承包取得的土地承包经营权转换并纳入到了土地经营权概念之中。……