对于国有土地使用权出让合同的法律属性，理论界一直存在民事合同和行政协议两种不同观点。在司法实践中，也出现了国有土地使用权出让合同纠纷分别通过民事诉讼和行政诉讼两种路径解决的情况。从合同签订方的法律属性、合同订立的目的、合同内容的自决范围以及合同双方的权利义务等方面分析，国有土地使用权出让合同应属行政协议。单一通过民事或者行政诉讼路径解决土地使用权出让合同纠纷均存在各自的问题，应根据起诉方的主体身份以及纠纷的性质在混合纠纷解决路径框架内选择适当诉讼路径，并且增设行政诉讼路径下的“反向诉讼”“行政调解”和民事诉讼路径下的“附带行政审查”等机制，完善立法，使混合诉讼路径更加明晰顺畅。

There have always been two different views in the theoretical cycle on the legal attribute of state-owned land use right transfer contracts, namely civil contracts and administrative agreements. In judicial practice, some disputes of state-owned land use right transfer contracts are solved through civil litigation and administrative litigation. Analyzed from legal attribute of contracting parties, purpose of contract, self-determination scope of content and rights and obligations of both parties to the contract, state-owned land use right transfer tracts should be classified as administrative agreements. There exist problems if land use right transfer contract disputes are solved through sole civil litigation or sole administrative litigation. Litigation path should be determined in accordance with the subject identity of prosecutors and nature of the dispute within the scope of mixed dispute resolution path. In addition, with added mechanisms of "reverse litigation", "administrative mediation" under administrative litigation paths and "incidental administrative review" mechanism under the civil litigation path, mixed litigation paths become a clearer and smoother way.