暨南学报(哲学社会科学版)

作者：张先贵

单位：上海海事大学法学院副教授,法学博士,华东政法大学法学博士后。

关键词：农用地转用审批,农地开发许可权,公法,私法

基金：国家社会科学基金青年项目“‘准征收’与行政补偿法律制度研究”(批准号:17CFX012);教育部哲学社会科学重大攻关项目“农村土地股份制改革的理论探索与制度设计”(批准号:13JZD007);中国博士后科学基金第61批面上资助项目(批准号:2017M611508)。

农地开发许可权乃是我国《土地管理法》确定的农用地转用审批程序的法权表达。农用地转用审批程序的核心在于是否持有农用地转用指标。理论上,“自上而下、统一分配、层层分解、指令性配额”的农用地指标管理运作模式,其本质上乃是我国土地管理践行“命令—服从”之单一公法方式的体现。实践中,规避农用地转用审批程序、违法实施农用地转用的现象较为普遍,这折射出农地开发许可权的运行陷入失灵的困境。从“两分两换”、城乡建设用地“增减挂钩”到“地票”交易的政策演进脉络,虽形式上突围了现行农用地转用审批制度下指标计划外取得的困境,具有化堵为疏的制度功能和价值,但其背后的逻辑乃是对农地开发许可权进行市场化改革的本质宣示,是农地开发许可权在国家治理现代化背景下的重大制度创新。在法理逻辑层面,对农地开发许可权进行市场化改革,体现了在一定条件下可借助私法的方式完成土地管理任务,实现土地管理目标的“行政私法”原理。当然,这亦是“行政私法”原理在我国土地管理领域的深化发展、机制创新和实践体现。我国现行的土地管理法律制度亦应该以此为契机和切入点来展开实质性的改革。"/>template{display:none;}.mag-rich-xref-fn { cursor: pointer;}//长视频$(document).ready(function(){if($("#showLongArticleVideo") && $("#showLongArticleVideo").length && $("#showLongArticleVideo").length>0){mag_ajax_update({ele_id:'showLongArticleVideo',url:mag_currentQikanUrl() + "/CN/article/showLongArticleVideo.do?id="+$("#articleId").val()});}});$(document).ready(function(){window.metaData = {"journal":{"issn":"1000-5072","qiKanMingCheng_CN":"暨南学报（哲学社会科学版）","id":2,"qiKanMingCheng_EN":"Jinan Journal"},"fundList_cn":["国家社会科学基金青年项目“‘准征收’与行政补偿法律制度研究”(批准号:17CFX012);教育部哲学社会科学重大攻关项目“农村土地股份制改革的理论探索与制度设计”(批准号:13JZD007);中国博士后科学基金第61批面上资助项目(批准号:2017M611508)。"],"article":{"keywordList_cn":["公法","农地开发许可权","农用地转用审批","私法"],"juan":"40","zhaiyao_cn":"农地开发许可权乃是我国《土地管理法》确定的农用地转用审批程序的法权表达。农用地转用审批程序的核心在于是否持有农用地转用指标。理论上,“自上而下、统一分配、层层分解、指令性配额”的农用地指标管理运作模式,其本质上乃是我国土地管理践行“命令—服从”之单一公法方式的体现。实践中,规避农用地转用审批程序、违法实施农用地转用的现象较为普遍,这折射出农地开发许可权的运行陷入失灵的困境。从“两分两换”、城乡建设用地“增减挂钩”到“地票”交易的政策演进脉络,虽形式上突围了现行农用地转用审批制度下指标计划外取得的困境,具有化堵为疏的制度功能和价值,但其背后的逻辑乃是对农地开发许可权进行市场化改革的本质宣示,是农地开发许可权在国家治理现代化背景下的重大制度创新。在法理逻辑层面,对农地开发许可权进行市场化改革,体现了在一定条件下可借助私法的方式完成土地管理任务,实现土地管理目标的“行政私法”原理。当然,这亦是“行政私法”原理在我国土地管理领域的深化发展、机制创新和实践体现。我国现行的土地管理法律制度亦应该以此为契机和切入点来展开实质性的改革。","endNoteUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/article/getTxtFile.do?fileType=EndNote&id=6087","bibtexUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/article/getTxtFile.do?fileType=BibTeX&id=6087","abstractUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/Y2018/V40/I4/99","qi":"4","id":6087,"nian":2018,"bianHao":"2018-4-99","zuoZheEn_L":"ZHANG Xiangui","juanUrl_en":"https://jnxb.jnu.edu.cn/skb/EN/Y2018","shouCiFaBuRiQi":"2018-04-18","qiShiYe":"99","qiUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/Y2018/V40/I4","lanMu_cn":"法学","pdfSize":"741","zuoZhe_CN":"张先贵","risUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/article/getTxtFile.do?fileType=Ris&id=6087","title_cn":"农地开发许可权市场化改革的法理逻辑——兼论私法的方式如何实现土地管理的目标","jieShuYe":"110","keywordList_en":[" farmland development permission"," private law"," public law","approval of agricultural land conversion"],"endNoteUrl_cn":"https://jnxb.jnu.edu.cn/skb/CN/article/getTxtFile.do?fileType=EndNote&id=6087","zhaiyao_en":"The right of farmland development permission is the expression of legal right of the examination and approval process of the conversion of agricultural land in China’s “Land Administration Law”. The core of the approval process of farmland conversion lies in whether it holds the index of conversion of agricultural land. On the theoretical level, the mode of agricultural land index management, which is “top-down, unified distribution, multi-level decomposition and mandatory distribution quota”, is essentially a manifestation of the single-law method of “command-compliance” practiced by China’s land administration. In practice, however, the violation of the conversion of agricultural land is more frequent, which reflects the plight of the operation of agricultural land development permission. The land policy has shifted from the two for two policy, link the increase and decrease of the land for construction use in both urban and rural areas, to the policy context of the “ticket” transaction. Although it breaks the predicament that has been obtained from the target plan with the system function and value of diversion rather than blocking, but the logic behind it is the essential declaration of market-oriented reform on the development permission of agricultural land. At the level of jurisprudential logic, the market-oriented reform of agricultural land development permission reflects the principle of administrative private law, which is, of course, the deepening development, mechanism innovation and practice of the principle of “administrative private law” in our country’s land administration. 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来源：2018年第4期

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