The Dilemmas and Solutions of Judicial Relief for Contractual Management Rights Holders in Collective Land Expropriation

集体土地征收中承包经营权人司法救济的困境与出路

In the framework of collective land expropriation, the right to contract land operation exhibits a hybrid nature of membership and property rights, leading to damages to the right holder’s interests. Empirical analysis of 387 civil and 432 administrative judgment documents reveals an abnormally high dismissal rate in collective land expropriation cases and the fragmented nature of the grounds for dismissal. This phenomenon stems from the “abstraction” of land property structure, the “debt-like” nature of land contract operation rights, the “monolithic” land expropriation compensation system, the “extreme” distribution of benefits, and the “ambiguous” pathways for relief. To address these, the study recommends clarifying usufruct rights, centralizing jurisdiction, enhancing litigant status, strengthening judicial duties, and creating a dual administrative and civil review mechanism for compensation claims.

在集体土地征收框架下，土地承包经营权兼具成员权与财产权特征，然而权利主体仅能依成员权身份主张土地补偿费，导致其司法救济面临多重困难。387 份民事、432 份行政裁判文书实证分析表明，集体土地征收案件驳回起诉率畸高，且驳回理由呈现碎片化的特点。这种现象根由在于集体土地产权结构“抽象化”、土地承包经营权“债权化”、土地征收补偿制度“一元化”、土地征收利益分配“极端化”及救济路径“模糊化”。为解决这些问题，建议应赋予土地承包经营权人依用益物权主张独立补偿，确定集体土地征收案件集中管辖，完善土地承包经营权人诉讼资格，强化法官释明义务和司法审查范围，建立行政民事并行审理机制并区分土地补偿费不同请求权审查思路。