修法背景下集体经营性建设用地入市改革的困境与出路

The Dilemma and Thinking of the Reform of Rural Profitable Construction Land Marketization Under the Background of Land Administration Law Amendment

2019年8月26日《土地管理法》的修改取消了集体建设用地不能直接进入市场流转的二元体制,成为此次修法最大的亮点。从历史维度考察,尽管"八二宪法"第二修正案概括性地允许土地使用权入市流转,但由于严峻的耕地保护形势和国家垄断土地经营模式的巨大潜在利益使得第二修正案并未在集体土地领域完全具体化,原《土地管理法》也因此限制集体建设用地的流转。然而实践中,集体建设用地的流转早已超越了法律的限定。此次修改虽然确立了集体经营性建设用地入市流转的合法性,但在"合宪性""入市范围""收益分配""财政、政府管制与自治经营"等方面依旧存在困境。改革的思路在于启动释宪机制,适时制定《集体建设用地流转法》,贯彻"初次分配基于产权、二次分配基于税制"的原则,为进一步改革进行铺垫。

The revision of the Land Administration Law on August 26,2019 canceled the dual system in which collective construction land could not directly enter the market,and became the biggest highlight of this revision.From the historical dimension,although the Second Amendment of the"1982s Constitution"generally allowed land use rights to transfer,the second amendment was not embodied due to the severe arable land protection situation and the huge potential benefits of the state monopoly land management model.For that,the original Land Administration Law therefore limited the circulation of collective construction land.However,in practice,the circulation of collective construction land has already exceeded the limits of the law.Although this revision has established the legitimacy of rural profitable construction land marketization,it still has difficulties in terms of"constitutionality","scope","revenue distribution","finance,government regulation and autonomous operation".The idea of reform is to start the constitutional interpretation mechanism,formulate Collective Construction Land Transfer Law in a timely manner,and implement the principle of"primary distribution based on property rights and secondary distribution based on tax system"to pave the way for further reform.