作者：伏创宇
作者介绍：中国社会科学院大学法学院副教授，法学博士
出版日期：2023年4月9日
内容提要 在公私法二元划分的框架下，司法实践针对国有土地出让缔约关系主要采用概念涵摄与关系推定的形式归类方法，这不足以应对公私法交织下的行为定性，更忽略了行为定性的目的。最高人民法院答复、司法实践以及学理上虽然在缔约关系定性中展开了一定的功能性思考，但在原则、标准与方法的运用上还模糊不清。行为定性的功能性思考旨在弥补形式定性的不足，增强形式定性的可接受性而非保障其正确性，应当遵循制定法拘束与国家权力配置原则。司法应当首先确定立法与行政是否已作出行为定性，并保留对行政定性的司法审查，进而在后果选择上遵循功能法定与定性相关性要求，最后运用判断、衡量与关联分析方法展开功能分析并选择定性。基于功能性思考，将国有土地出让缔约关系界定为民事关系更具可接受性。在行为定性中嵌入功能性思考，对行政协议与民事合同的界分亦具有积极意义。
关键词 国有土地出让 缔约 行政行为 民事合同 行政协议
Abstract: Based on the dualization of public and private law, judicial practice mainly adopts the formal classification method of subsumption and relationship presumption for the contractual relationship of state-owned land transfer, which is not enough to deal with the definition of behavior under the intertwining of public and private law, and also ignores the purpose of the definition. Though some functional reflection has been carried out in the Supreme People’s Court’s reply, judicial practice, and doctrine regarding the nature of contractual relations, it is still ambiguous in the application of principles, standards, and methods. The functional reflection on the definition of behavior aims to make up for the deficiency of formal definition, and enhance the acceptability of it rather than ensure its validity. It should be restrained by statute law and in accord with the allocation of state power. The judiciary should first confirm the choice of legislation and administration on the definition of behavior, retain judicial review of the administrative resolution, and then meet the requirements of statutory functions and the purpose of the legislation in choosing the results, and finally, use judgment, measurement and correlation analysis to carry out the functional analysis. Based on functional thinking, it is better to define the contractual relationship of state-owned land transfer as a civil relationship. It is also of positive significance to embed functional thinking in the distinction between administrative agreements and civil contracts.