SECURITIES (INSIDER DEALING) ORDINANCE

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SECURITIES (INSIDER DEALING) ORDINANCE ——附加英文版

Hong Kong


SECURITIES (INSIDER DEALING) ORDINANCE
 (CHAPTER 395)
 ARRANGEMENT OF SECTIONS
  
  ion
  I    PRELIMINARY
  hort title
  nterpretation
  pplication
  Connected with a corporation"
  ossession of relevant information obtained in privileged
capacity
  Dealing in securities"
  Take-over offer"
  Relevant information"
  II    INSIDER DEALING
  hen insider dealing takes place
  Certain persons not to be held insider dealers
  Trustees and personal representatives
  Exercise of right to subscribe for or acquire securities
  Duty of officers of corporation
  Insider dealing not void or voidable
  III   INSIDER DEALING TRIBUNAL
  Constitution of Tribunal Inquiries by Tribunal
  Inquiries into insider dealing
  Powers of Tribunal
  Further powers of Tribunal to obtain information
  Incriminating answers
  Offences
  Privileged information Report and orders of Tribunal
  Report of Tribunal following inquiry
  Orders etc. of Tribunal
  Order against officer of corporation
  Limitation on aggregate amount of penalties
  Witnesses' expenses
  Expenses of investigation and inquiry
  Form and proof of order of Tribunal
  Order of Tribunal may be registered in Court
  Offence
  IV    APPEALS
  Appeal to Court of Appeal
  Powers of the Court of Appeal on appeal
  Stay of execution on appeal
  V    MISCELLANEOUS
  Offences by corporation, etc.
  Limitation on commencement of proceedings
  Chief Justice may make rules
  44. (Omitted)
 Whole document:
  
  dule.
  rdinance to amend the law relating to insider dealing in 
securities;
  for connected purposes.
  eptember 1991] L. N. 269 of 1991
 PART I PRELIMINARY
  
  hort title
  Ordinance may be cited as the Securities (Insider Dealing)
Ordinance.
  nterpretation
  In this Ordinance, unless the context otherwise requires--
  ociate", in relation to a person entitled to exercise or control 
the
  cise of voting power in relation to a corporation, means--
  that person's spouse, reputed spouse, person co-habiting 
with that
  on as a spouse, that person's brother, sister, parent, 
step-parent,
  d (natural or adopted) or step-child;
  any corporation of which that person is a director;
  any person who is an employee or partner of that person;
  if that person is a corporation--
  any director of that corporation;
  any related corporation of that corporation; and
  ) any director or employee of any such related corporation; and
  if that person has with any other person an agreement or 
arrangement
  respect to the acquisition, holding or disposal of shares or 
other
  rests in that corporation or under which they undertake 
to act
  ther in exercising their voting power in relation to it, that 
other
  on;
  k or other document" includes--
  books of a banker;
  cheques, orders for the payment of money, bills of 
exchange, and
  issory notes in the possession or under the control of a banker;
  securities in the possession or under the control of a banker,
whether
  ay of pledge or otherwise;
  any document or record used in the ordinary course of business 
of a
  ;
  any record so used which is kept otherwise than in a legible form 
and
  apable of being reproduced in a legible form; and
  any accounts or deeds;
  mission" means the Securities and Futures Commission 
established by
  Securities and Futures Commission Ordinance (Cap. 24);
  pany" means a company as defined in section 2 (1) of the 
Companies
  nance (Cap. 32);
  troller", in relation to a corporation, means any person--
  in accordance with whose directions or instructions the 
directors of
  corporation or of another corporation of which it is a subsidiary 
are
  stomed to act; or
  who, either alone or with any associate, is entitled to exercise, 
or
  rol the exercise of, more than 33% of the voting power at 
general
  ings of the corporation or of another corporation of which it 
is a
  idiary, and references in this Ordinance to "control" 
shall be
  trued accordingly; "corporation" means any company or 
other body
  orate or an unincorporated body, incorporated or formed either
in Hong
  or elsewhere;
  
  ector" includes--
  any person occupying the position of director, by 
whatever name
  ed; and
  any person in accordance with whose directions or 
instructions the
  ctors of the corporation are accustomed to act;
  ument" includes any register, book, record, tape recording, any 
form
  omputer input or output, and any other document or similar
material
  ther produced mechanically, electrically, or manually, or by any
other
  s whatsoever);
  h Court" means the High Court of Justice;
  ding company" means a corporation which is a holding company 
within
  meaning of section 2 of the Companies Ordinance (Cap. 32);
  uiry" means an inquiry instituted under section 16;
  ider dealer" means a person who perpetrates any act which 
is an
  der dealing within the meaning of section 9 and also means a 
person
  is to be regarded as an insider dealer under section 16 (6);
  ider dealing" means an insider dealing within the meaning of 
section
  
  ted securities" means securities that are listed on the 
Unified
  ange at the time of any insider dealing in relation 
to those
  rities;
  icer" in relation to a corporation includes a director, 
manager or
  etary, and in relation to an unincorporated body includes every
member
  he governing body thereof; "related corporation", in relation 
to a
  oration, means--
  any corporation that is that corporation's subsidiary or 
holding
  any or a subsidiary of that corporation's holding company;
  any corporation a controller of which is also a controller of 
that
  oration; "relevant share capital" means a corporation's issued 
share
  tal of a class carrying rights to vote at general meetings 
of the
  oration;
  urities" means any shares, stocks, debentures, loan stocks, 
funds,
  s, or notes of, or issued by, any body, whether 
incorporated or
  corporated, or of any government or local government authority, 
and
  udes--
  rights, options, or interests (whether described as 
units  or
  rwise) in or in respect of any of the foregoing;
  certificates of interest or participation in, or temporary or 
interim
  ificates for, receipts for, or warrants to subscribe to or 
purchase,
  of the foregoing; or
  any instruments commonly known as securities;
  sidiary" means any corporation which is a subsidiary 
within the
  ing of section 2 of the Companies Ordinance (Cap. 32);
  bunal" has the meaning given to it in section 15;
  fied Exchange" means the stock market established under section
27 of
  Stock Exchanges Unification Ordinance (Cap. 361).
  For the purpose of the definition of "controller", where a 
person is
  tled to exercise or control the exercise of 33% or more of the 
voting
  r at general meetings of a corporation and that 
corporation is
  tled to exercise or control the exercise of any of the voting power
at
  ral meetings of another corporation ("the effective voting 
power")
  the effective voting power at general meetings of 
that other
  oration is taken as exercisable by that person.
  
  A person shall not be deemed to be a person in accordance with 
whose
  ctions or instructions the directors of a corporation are 
accustomed
  ct by reason only that the directors of the corporation act on 
advice
  n by him in a professional capacity.
  In this Ordinance securities are deemed to be listed on the 
Unified
  ange notwithstanding that dealings in such securities 
have been
  ended.
  In this Ordinance a reference to an interest in securities is 
to be
  as including an interest of any kind whatsoever in the 
securities;
  accordingly there are to be disregarded any restraints or
restrictions
  hich the exercise of any right attached to the interest 
may be
  ect.
  pplication
  Ordinance shall not have effect with respect to an insider dealing
in
  tion to the listed securities of a corporation which has taken 
place
  re the commencement of this Ordinance.
  Connected with a corporation"
  A person is connected with a corporation for the purposes of
section 9
  being an individual--
  he is a director or employee of that corporation or a 
related
  oration; or
  he is a substantial shareholder in the corporation or a 
related
  oration; or
  he occupies a position which may reasonably be expected to give 
him
  ss to relevant information concerning the corporation by virtue
of--
  any professional or business relationship existing between
himself (or
  employer or a corporation of which he is a director or a firm of
which
  s a partner) and that corporation, a related corporation or an
officer
  ubstantial shareholder in either of such corporations; or
  his being a director, employee or partner of a 
substantial
  eholder in the corporation or a related corporation; or
  he has access to relevant information in relation to the 
corporation
  irtue of his being connected (within the meaning of paragraph (a),
(b)
  c)) with another corporation, being information which relates 
to any
  saction (actual or contemplated) involving both those
corporations or
  lving one of them and the listed securities of the other or to 
the
  that such transaction is no longer contemplated; or
  he was at any time within the 6 months preceding any 
dealing in
  tion to listed securities within the meaning of section 9 a 
person
  ected with the corporation within the meaning of paragraph (a),
(b),
  or (d).
  A corporation is a person connected with a corporation 
for the
  oses of section 9 so long as any of its directors or employees 
is a
  on connected with that other corporation within the 
meaning of
  ection (1).
  In subsection (1), "substantial shareholder" in 
relation to a
  oration means a person who has an interest in the relevant 
share
  tal of that corporation which has a nominal value equal to or 
more
  10% of the nominal value of the relevant share capital of 
that
  oration.
  
  ossession of relevant information obtained in privileged
capacity
  A public officer or a member or employee (whether such 
member or
  oyee is temporary or permanent, paid or unpaid) of any body 
referred
  n subsection (2), who in his capacity as such receives 
relevant
  rmation concerning a corporation shall be deemed to be a 
person
  ected with that corporation for the purposes of section 9.
  The bodies referred to in subsection (1) are--
  the Executive Council;
  the Legislative Council;
  the Futures Exchange Company, Stock Exchange Company or any 
clearing
  e;
  any board, commission, committee or other body appointed by 
or on
  lf of the Governor or the Governor in Council under any Ordinance;
  any body corporate established or incorporated by Ordinance; and
  any body corporate specified by the Financial Secretary by 
notice
  ished in the Gazette.
  In this section--
  aring house" means a clearing house within the meaning of section
2
  of the Commodities Trading Ordinance (Cap. 250) or authorized 
under
  other Ordinance to carry on business as a clearing house in
respect of
  rities;
  ures Exchange Company" means the Exchange Company within the 
meaning
  ection 2 (1) of the Commodities Trading Ordinance (Cap. 250);
  ck Exchange Company" means the Exchange Company within the
meaning of
  ion 2 (1) of the Stock Exchanges Unification Ordinance (Cap. 361).
  In the case of a body referred to in subsection (2) which 
has no
  ers the reference in subsection (1) to a member shall be construed 
as
  ference to a member of the governing body thereof.
  Dealing in securities"
  the purposes of this Ordinance, a person deals in securities if
  ther as principal or agent) he buys, sells, exchanges or 
subscribes
  or agrees to buy, sell, exchange or subscribe for, any securities 
or
  ires or disposes of, or agrees to acquire or dispose of, the right 
to
  sell, exchange or subscribe for, any securities.
  Take-over offer"
  his Ordinance, "take-over offer for a corporation" means an offer
made
  ll the holders (or all the holders other than the person making 
the
  r and his nominees) of the shares in the corporation to acquire 
those
  es or a specified proportion of them, or to all the holders (or 
all
  holders other than the person making the offer and his nominees)
of a
  icular class of those shares to acquire the shares of that class
or a
  ified proportion of them.
  Relevant information"
  his Ordinance "relevant information" in relation to a 
corporation
  s specific information about that corporation which is not 
generally
  n to those persons who are accustomed or would be likely to deal 
in
  listed securities of that corporation but which would if 
it were
  rally known to them be likely materially to affect the price of 
those
  rities.
 PART II INSIDER DEALING
  
  hen insider dealing takes place
  Insider dealing in relation to the listed securities of a 
corporation
  s place--
  when a person connected with a corporation who is in 
possession of
  rmation which he knows is relevant information in relation to 
that
  oration deals in any listed securities of that corporation (or
in the
  ed securities of a related corporation) or counsels or 
procures
  her person to deal in such listed securities knowing or 
having
  onable cause to believe that such person would deal in them;
  when a person who is contemplating or has contemplated making
(whether
  or without another person) a take-over offer for a corporation 
and
  knows that the information that the offer is contemplated or 
is no
  er contemplated is relevant information in  relation 
to  that
  oration, deals in the listed securities of that corporation (or
in the
  ed securities of a related corporation) or counsels or 
procures
  her person to deal in those listed securities, otherwise than for 
the
  ose of such take-over;
  when relevant information in relation to a corporation is 
disclosed
  ctly or indirectly, by a person connected with that 
corporation, to
  her person and the first-mentioned person knows that the 
information
  elevant information in relation to the corporation and knows 
or has
  onable cause for believing that the other person will make use
of the
  rmation for the purpose of dealing, or counselling or 
procuring
  her to deal, in the listed securities of that corporation (or in 
the
  ed securities of a related corporation);
  when a person who is contemplating or has contemplated making
(whether
  or without another person) a take-over offer for a corporation 
and
  knows that the information that the offer is contemplated or 
is no
  er contemplated is relevant information in  relation 
to  that
  oration, discloses that information, directly or 
indirectly, to
  her person and the first-mentioned person knows or has 
reasonable
  e for believing that the other person will make use of the
information
  the purpose in dealing, or in counselling or procuring 
another to
  , in the listed securities of that corporation (or in the 
listed
  rities of a related corporation);
  when a person who has information which he knows is 
relevant
  rmation in relation to a corporation which he received 
(directly or
  rectly) from a person--
  whom he knows is connected with that corporation; and
  whom he knows or has reasonable cause to believe 
held that
  rmation by virtue of being so connected,
  s in the listed securities of that corporation (or in the 
listed
  rities of a related corporation) or counsels or procures 
another
  on to deal in those listed securities;
  when a person who has received (directly or indirectly) from a 
person
  he knows or has reasonable cause to believe is contemplating or
is no
  er contemplating a take-over offer for a corporation, 
information to
  effect and knows that such information is relevant 
information in
  tion to that corporation, deals in the listed securities 
of that
  oration (or in the listed securities of a related 
corporation) or
  sels or procures another person to deal in those listed
securities.
  
  An insider dealing in relation to the listed 
securities of a
  oration also takes place when a person who is knowingly in 
possession
  elevant information in relation to that corporation in any 
of the
  umstances described in subsection (1) --
  counsels or procures any other person to deal in the listed
securities
  hat corporation (or in the listed securities of a related
corporation)
  he knowledge or with reasonable cause to believe that, that 
person
  d deal in those listed securities outside Hong Kong on any 
stock
  ange other than the Unified Exchange; or
  discloses that relevant information to any other person 
in the
  ledge or with reasonable cause to believe that, that or some 
other
  on will make use of that information for the purpose of dealing,
or of
  selling or procuring any other person to deal, in 
the listed
  rities of that corporation (or in the listed securities of a 
related
  oration) outside Hong Kong on any stock exchange other 
than the
  ied Exchange.

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民政部关于印发《关于加强我部法制工作的意见》的通知

民政部


民政部关于印发《关于加强我部法制工作的意见》的通知
民政部


各司局、各直属单位:
为适应新形势下民政工作改革开放的需要,加强我部法制工作,一九九四年第八次部长办公会议讨论通过了《关于加强我部法制工作的意见》。现印发给你们,望遵照执行。

关于加强我部法制工作的意见
在社会主义现代化建设中,大量的社会行政事务管理要通过民政部门的具体行政行为来实现,只有把这些行政行为纳入法制的轨道,才有可能从根本上提高行政效能,并保证政策的连续性和稳定性。《国务院关于加强政府法制工作的决定》,进一步强调了加强政府法制工作的重要性,
并对各部门今后的法制工作提出了具体要求。为了贯彻落实《国务院关于加强政府法制工作的决定》精神,努力开创民政工作的新局面,现对加强民政部法制工作提出如下意见:
一、积极做好民政部法制工作的规划及其落实工作。
从现在到本世纪末将是我国由计划经济体制向社会主义市场经济体制过渡的重要时期。市场经济必然要求健全的法制作保障,因此,法制建设将是市场经济体制建立过程中涉及全局的一项重要工程。就民政工作而言,经济体制的转轨,必将加快各项业务工作的深化改革,以便和各项重
大体制改革相接轨相配套,因此也就必然要求民政法制建设工作紧紧跟上。民政法制建设的基本目标是:到本世纪末,初步建立起以社会保障法规为主的适应社会主义市场经济发展要求的民政法规体系。要严肃执法,努力完善行政执法监督机制,有计划地组织执法检查工作;深入开展法制
教育,按时完成民政“二五”普法工作;认真做好行政复议工作;加强民政法制建设综合调研和理论研究工作;建立起民政法规数据库。在立法工作方面,要把建立健全社会保障的立法作为重点,积极组织和完成《社会救济法》、《退役士兵安置法》的起草工作;组织和完成《村民委员会
组织法》的修订工作;积极参与《老年人权益保障法》的起草工作;抓好《城市街道办事处组织条例》、《现役军官退休安置条例》、《结社法实施细则》、《殡葬管理条例》、《社会福利企业管理办法》的起草和修订工作。
二、强化部法制工作机构的参政议政功能,建立正常的法制工作程序。
民政部法制办公室是民政法制工作的专门工作机构,具体承担民政部机关和全国民政系统法制建设和法制理论研究的综合管理工作,其任务是对全国民政系统的法制建设工作进行规划、指导、协调、监督、服务,协助部领导通过法制手段贯彻落实重大决策,为中心工作服务。为使民政
法制工作真正发挥影响全局的作用,应充分发挥部法制办的参谋助手作用,将法制工作列入重要议程,并建立统一的法制工作程序。(一)凡涉及部里两个业务司以上的综合性立法项目,由法制办公室牵头组织起草工作;(二)凡部里各司在本司业务范围内的立法项目,法制办公室积极参
与起草工作;(三)凡提交部务会、部长办公会议研究讨论的有关法规性文件,事先须经法制办公室审核修改;凡部里上报及下发的法规及法规性文件,必须经法制办公室会签;(四)凡涉及部里立法的问题,统一由法制办公室负责与国务院法制局联系;(五)凡部里及司局组织的有关法
制建设方面的国内外的调研、考察工作,法制办公室应派人参加。
三、加强民政部法制办公室的基础建设和自身建设。
民政立法和执法的任务极为艰巨,因此必须有必要的经费作保证。法制建设所需经费有法制办公室统一编报,交计划财务司审核办理。
选配素质高、能力强、德才兼备的干部充实法制办公室,并为他们提供业务学习和业务培训机会,提供必要的图书、信息设备及办公条件。法制办公室要加强内部管理,建立岗位责任制及成果与政绩考核制等规章制度,努力提高工作效率。法制办公室工作人员要严格要求自己,努力提
高自身业务素质,把法制办公室办成一个团结、高效、廉洁的集体。
四、加强对法制工作的领导。
民政法制工作是涉及民政工作全局的重要工作之一,各级领导必须给以充分的重视。各司局要确定一名主要领导负责与本司局有关的法制工作;部法制办公室负责协助部领导具体处理民政法制建设问题,同时就法制建设问题与各司局进行联系,协调各司局之间的关系。



1994年4月27日
试论土地承包经营权改革

作者:倪昊
写作日期:2002年3月
电子邮件davsda@sina.com

[本文摘要]:土地承包经营权制度是我国农村土地制度的核心,在现行的法规政策中,土地承包经营权有多种不同的称谓,同时学者们对土地承包经营权性质的看法也各不相同。土地承包经营权制度有其成功之处,但随着经济的发展,该制度越来越阻碍了农村经济的发展。所以,有学者提出了以农地使用权为土地承包经营权物权化的模式。笔者认为农地使用权的物权化方式固然有其道理,但是物权有僵硬性的缺陷,在中国农村现在的经济条件下,这种改革方案必然会遇到极大的困难。在目前的条件下最佳的办法是实行土地承包经营权的契约化,用债权的灵活性来弥补物权的刚性,从而达到完善土地承包经营权,保护农民利益,发展农业的目标。

[关键字]:土地承包经营权 农地使用权 物权化 契约化
一、 土地承包经营权简介
中国长期以来一直是一个传统的农业国家,农业是否稳定、农业是否发展关系到整个国家的长期稳定和发展。中国新民主主义革命胜利之后,进行了农村土地制度的改革,废除了几千年来的封建土地制度,使农村生产力得到了极大的提高。在党的十一届三中全会的指引下,我国建立了土地承包经营制,使中国的农村土地制度又经历了一场重大的革命,从此土地承包经营权成为中国农地制度的核心。
土地承包经营权是指在农用土地集体所有的前提下,集体组织成员和集体经济组织通过签订土地承包经营合同而获得的在一定时期内,在政策法律的允许范围内经营农用土地的权利。由于这种权利是通过各式各样的土地承包合同而取得的,因此其内容具有多样性、差异性。
在政策法规中,关于土地承包经营权的称谓五花八门。有的称之为“土地承包经营权”、有的称之为“土地使用权”、有的称之为“农地使用权”、有的称之为“承包使用权”。本文为了讨论的需要,仍然采用土地承包经营权的概念.
关于农村土地承包经营权的性质也是一个有争议的问题。学者们众说纷纭,综合起来主要有劳动关系说 、 物权兼债权说 、债权兼物权说、复合所有权说 、田面权说 ,但主要集中在物权说与债权说之争上。
物权说主要理由有:第一,土地承包经营权是民法通则第五章“民事权利”第一节“财产所有权和与财产所有权有关的财产权”中所直接规定的权利。学术界通常认为,该节是对物权制度所作的规定;第二,承包人对所承包的土地有在法律上和在合同规定范围内直接控制、利用的权利;第三,土地承包权具有排他性;第四,土地承包经营权具有长期稳定性。
债权说的主要理由如下:第一,承包合同是当事人签订的,权利义务没有法定的标准。第二,承包权不能对抗发包权,强行摊派乱收费甚至任意撕毁合同,侵犯农户权利的现象大量存在。第三,发包人权利膨胀,干预农户的生产经营,农户转包需发包人的同意,这一点更无异于债权关系。第四,土地承包经营权是有期限的。
二、 土地承包经营权制度的成功之处
从总体上来说,农村土地承包经营权制度是成功的,其原因简述如下:
第一,我国土地承包经营权制度的产生大体上符合了我国“用地性质不同,法律调整不同”的客观规律。农村土地承包经营权区别于其他土地使用权的根本标志就是其权利的设定是否以农业生产经营为目的。
第二,土地承包经营权制度在一定程度上解决了土地归属与使用的问题。抛弃了过去立法“重归属,轻利用”的“所有权本位”观念。而通过承包经营合同把农地交到能够积极从事农业生产经营的农民个人手中,使农地在一定时期内充分发挥了其生产的潜力,实现土地的增殖,为整个国民经济建设做出了重大的贡献。
第三,土地承包经营制基本上实现了“耕者有其田”,在特定时期调动起了农民的生产积极性,为解决农业大国中农业人口的就业问题和维持整个国家、社会秩序的稳定发挥着极其重要的作用。
第四,土地承包经营权制度中有不少反映公有制特色的具体内容,如土地用途不可擅自改变、及时使用土地、减免承包费、法定最长承包期限及土地承包经营权消灭后的再生或补偿等,适当地体现着一定的国家或集体职能,即保障耕地资源的有效维护和充分利用、保障农民的劳动就业和基本生活、保证下一代获得土地承包经营权的平等机会等。
三、 土地承包经营权制度的缺陷、弊端及其原因
土地承包经营权制度在我国是现行农地使用制度的核心,在农村经济的发展中发挥了重大作用,使农民生产、生活面貌发生了翻天覆地的变化。但随着农村经济体制改革的深入,土地承包经营制的缺陷日渐明显,在很大程度上阻碍了农村经济的进一步发展。
(一)土地承包经营权制度的缺陷
1、现行土地承包经营权制度的法律法规不系统、不具体,而且比较滞后。在制度的具体实行中真正起到直接作用的是政府的政策和措施。原因在于家庭联产承包责任制的推行,本身就是一场自下而上的制度革新活动。政府的政策和措施在其过程中起着直接作用。而法律则在认可和规范农村基层的一系列制度创新活动中一直处于被动地位,所以不可避免地表现出严重的滞后性。例如,现行立法对于目前全国各地农村实践中出现的不同类型的农地制度, 就无统一的、系统的、及时的规范。所以现在应借助立法对全国各地农村的创新成果进行总结、巩固和统一。
2、现行法对农村土地承包经营权的本质内容即“农业经营”的含义没有作出具体规定。“农业”一词有广义与狭义之分,狭义上的农业是仅指栽培和饲养牧畜的生产事业,而广义上的农业还包括林业、牧业、渔业和农村副业等项生产在内。 在我国的相关法律文件和学者的论著中使用的“农业”—词多采广义上的概念; 而且在传统上,对“农业”一词一般理解成广义上的概念;在实践中也习惯于接受和使用广义上的“农业”一词。采广义上的“农业”与我国农村经济结构的现状更为相符,便于系统地规范狭义农业、林业、牧业、渔业和农村副业中的土地使用制度。
3、 行法在列举设定土地承包经营权的不同土地时,定性不准不清。《民法
通则》第80条第2款和第81条第3款分别规定了以土地为标的土地承包经营权和以森林、山岭、草原、荒地、滩涂、水面等自然资源为标的土地承包经营权,而实质上,所谓的森林、山岭、草原、荒地、滩涂、水面与在法律条文中未列出的耕地和草地等都是土地的不同自然表现形式,它们与土地不是一个层次上的概念。 因此,上述两种土地承包经营权之间的关系为包含与被包含的关系,不能并列于法律条文之中。否则容易让人产生误解,认为这两种权利是并列关系。例如,有的学者把上述二者强行割裂开来,把其中的后者定性为《法国民法典》和《德国民法典》中所说的用益权。
4、土地承包经营权本身含有债权属性。
现行土地承包经营权在性质上虽有争论,但不可否认它在某些方面的确表现出债权的属性。表现如下:第一,土地承包经营权的权利义务内容仍由联产承包经营合同设定,发包人仍保留了相当大的对发包土地的支配力,而承包人并无完全自主支配土地的权利,不具备物权法定的特性。从而使得这种权利的物权效力不强,使之具有债权的典型特征——相对性。当发包方违反承包合同时,其承担的是违约责任,并非是侵害物权所要承担的损害赔偿、返还原物、排除妨碍及消除影响等责任。因此,有的学者认为,现行土地承包经营权仍是一种典型的完全由联产承包合同约定的债权债务关系。 第二,现行土地承包经营权的主体主要限于集体与本集体农民,这反映了农村家庭联产承包责任制的初衷,但更反映了一种集体内部权利义务的分配关系。这使得土地承包经营权象是具有对人(作为土地所有者的集体)的效力,而并无物权的对世效力。当土地受到集体成员以外的人的侵害时,赖以救济的依据不是个别成员的承包经营权,而是集体的所有权。第三,现行法规定,承包人将承包合同转让或转包给第三者,必须经发包人同意。 这符合双务合同中债权债务概括转让或部分转让的特征,但不具物权转让的特征。第四,现行土地承包经营权的设定、变更和消灭没有严格的登记管理制度,这不符合物权的“公示公信”原则,反倒类似于债权的设立、变更和消灭方式。
(二)现行土地承包经营权产生的负面作用
由于现行的土地承包经营权有着明显的缺陷,所以在实践中产生了一定的负面作用。第一,不利于维护土地承包经营者的生产积极性。在承包双方之间,土地承包经营权的债权性为发包方利用土地经营管理人的优势地位任意侵害承包方的权益提供了方便;在外部关系上,承包人的土地承包经营权不足以对抗来自第三人的非法侵害,土地承包人几乎处于一种无权的地位。第二,不利于农用地使用权、收益权的市场流转,从而限制了市场对农用地利用的优化配置。承包人对承包标的的依法处分完全由发包人控制,发包人几乎处于准行政主体的位置。第三,刺激了承包人农业生产的“短期行为”,造成农用地的破坏,同时它还使得农民不能安心生产和进行长期投资,不利于农业生产的长期稳定发展。
(三)现行土地承包经营权制度缺陷的原因分析
从现在的角度来看,土地承包经营权制度确实是有缺陷的,咎其原因主要有两方面:
第一,农村经济发展的历史原因。法律制度根源于物质的生活关系,它表明和记载了经济关系的要求。同样,土地承包经营权制度也不是立法者凭空想象出来的,而是在我国对农村经济进行改革,推行家庭联产承包责任制后,为记载和调整产生的各种新型的农村经济关系而确立的。这一制度在当时不仅没有暴露出如此多的不足,而且适合了农村经济发展的要求,保障和推动着家庭联产承包责任制这一改革措施的贯彻和实施。现在农村生产力得到了极大的发展,对农村土地制度提出新的要求,使得土地承包经营权制度慢慢脱离了现实生产力的发展状况。而现行法对旧的土地承包经营权制度的改革又只是零散的修补,而且过分依赖于政策的颁布,显然难以满足农村经济发展的新要求,弊端由此产生。例如,土地承包经营权的短期性和不可自由流转性,就阻碍了土地生产率的进一步提高,阻碍了农村经济向集体经营规模化、集约化发展。由此可见,农村经济的不断向前发展,是使现行土地承包经营权制度表现出诸多局限的最主要、最根本的原因。
第二,立法理论和技术上的原因。农村土地承包经营权制度是我国特有的法律制度,在其确立之时,没有任何已有的立法模式可以借鉴,而当时我国法学研究不够深入,关于土地承包经营权制度的研究不成熟。由于立法技术上缺乏充足的理论指导,必然导致一系列的失误,所以在当初立法确立土地承包经营权制度时,没有为以后的自我完善和发展留下足够的余地,缺乏前瞻性。从而其自身的毛病积少成多,积小成大。例如,“土地承包经营权”这一名称的使用,便是当初立法技术上的失败,现已成为土地承包经营权改革的一个障碍。
四、 土地承包经营权物权化改革思路
由于现行的土地承包经营权存在明显的缺陷,所以学者们纷纷提出自己的设想来改革现行的土地承包经营权。现在的主流观点是把土地承包经营权物权化,所谓土地承包经营权物权化思路是指将土地承包经营权改造成为某一模式的用益物权,并将其纳入统一物权法体系的设想。这一思路主要针对现行农地使用制度中土地权利不稳定、缺乏有效保护等缺陷问题,建议运用效力强大的物权制度改造土地承包经营权以解决这些问题。这一思路目前得到大多数法学学者的赞同。
物权化思路是一个大趋势,得到了绝大多数学者的赞同。但用哪一种模式来进行土地承包经营权物权化改革,不同学者有不同的观点。有的学者提出用永佃权的模式改造土地承包经营权 ,有的学者提出用用益权的模式来改造土地承包经营权 ,著名学者梁慧星提出的以农地使用权为模式来改造土地承包经营权的思路 得到了众多学者的赞同。
所谓农地使用权是指农业经营者在集体经济组织所有的或者国家所有由集体经济组织长期使用的土地上进行耕作、养殖或畜牧等农业活动的权利。
(一)农地使用权的法律特征:
1、 农地使用权的主体为一切农业经营者。
2、 农地使用权系以集体经济组织所有或国家所有由集体经济组织长期使用
的土地为客体。
3、 农地使用权系一种以在他人土地上为农业性质的耕作、养殖或畜牧的用
益物权。
4、 农地使用权是以支付地租而成立的物权。
(二)农地使用权的内容
所谓农地使用权的内容,也就是农地使用权应当包括的具体权能,笔者认为它应包括以下几方面。