農地三權分置改革中土地經營權的法理反思與制度回應

Legal Reflection on and Institutional Response to Rural Land Management Right in the Reform of“'Three-Right Separation' of Rural Land

農地三權分置改革政策的核心是，設置從土地承包經營權中分離出來的土地經營權，如此制定政策的初衷和動因需要進行全面的廓清。土地經營權所負載的目標功能大致可以概括為穩定土地承包經營權流轉中受讓人的經營預期，滿足其為擴大生產經營而進行抵押融資的需求，同時保障原土地承包經營權人對土地承包經營權的保有權、控制權和收益權三重目的。以土地經營權為出發點和落腳點的農地三權分置改革方案需要通過三重門：一是價值取向之門；二是體系化之門；三是實踐之門。仔細檢驗發現，如此制度設計無法順利通過上述三重門。面對農地三權分置已經成為既定改革方向和政策方案的現實，理論界需要秉持務實態度，在遵循法理和邏輯的前提下創新理論、更新話語、革新規則，借民法典編纂之機整合現行土地承包經營權制度，完善農村家庭承包經營體制，為農業現代化奠定制度基礎，提供法制保障。

The core of the reform policy of 'Three-Right Separation' of rural land is to set up management right of rural land separated from contractual management right of rural land, so the original intention and motivation of the reform policy need to be comprehensively clarified. The functions of management right of rural land in general can be summed up as keeping stable expectation, circulation of land contract and management rights freely, and meeting the demand for mortgage financing to expand its production; meanwhile, protecting the original holder of contractual management right of rural land still to retain, control and gain. Taking the management right of rural land as the reform goal, 'Three-Right Separation' of rural land should pass through the three check: the first is the value orientation check; the second is the systematization check; the third is the practice check. It is found that this system design can not successfully go through the three check. Theorists need to uphold the pragmatic attitude and innovative theory, and improve the rural land contract management rules.