乡村振兴视野下农村集体经营性建设用地直接入市:演进逻辑、现实挑战与未来展望

Direct Market Entry of Rural Collective Commercial Construction Land in the Perspective of Rural Revitalization:Evolutionary Logic,Realistic Challenges and Future Prospects

改革开放以来四次修订了《土地管理法》,农村集体经营性建设用地经历了从禁止入市、试点入市到全面入市的转变,是强制性制度变迁与诱致性制度变迁交互影响的结果,政策目标导向是“还权于民”“让利于民”。但目前仍然存在产权制度不完整、增值收益分配机制不健全和改革协同性不够等制度障碍。实现农村集体经营性建设用地与国有建设用地“同地、同权、同价”的改革目标,仍需正确处理好农村集体经营性建设用地“公益性”与“经营性”关系的基础上,破解制度障碍、拓展改革空间。由此提出农村集体经营性建设用地入市的四点建议:(1)基于乡村振兴导向的目标兼容,农村集体经营性建设用地应服从国土空间规划;(2)基于保障国家粮食安全的战略高度,农村集体经营性建设用地应服从强化耕地非农化、非粮化倾向的管控;(3)基于构建城乡融合发展的体制机制,拓展农村集体经营性建设用地入市规模;(4)基于构建利益主体土地增值收益共享机制,完善集体经营性建设用地入市收益的分配方法。

Since the reform and opening up,the Land Administration Law has been amended four times,and the rural collective commercial construction land has undergone a transformation from being banned from the market,and being listed on a pilot basis,to being fully listed,which is the result of the interaction between the mandatory and induced institutional changes,with the policy goal orientation of“returning power to the people”and“giving benefits to the people”. However,there are still institutional barriers such as incomplete property rights system,inadequate distribution mechanism for value-added returns and insufficient synergy in reform. To achieve the ultimate goal of reforming the land for rural collective commercial construction and state-owned construction land with“the same land,the same right and the same price”. we need to crack institutional barriers and expand the scope of reform on the basis of correctly handle the relationship between“public welfare”and“business”of rural collective commercial construction land. This has led to four recommendations for the market entry of rural collective commercial construction land. First,based on the compatibility of rural revitalization-orientation,rural collective commercial construction land should be subordinated to the spatial planning of the national land. Second,based on the strategic level of guaranteeing national food security,rural collective commercial construction land should serve to strengthen the control of non-agricultural and non-grain growing tendencies of arable land. Third,expand the scale of market entry for rural collective commercial construction land based on the construction of institutional mechanisms for the integrated development of urban and rural areas. Last,improve the method of distributing the revenue from the market entry of collective commercial construction land based on the construction of mechanism for sharing the land value increment from land of interest subject.