集体建设用地使用权入市改革的利益衡量:一个分析框架

Interest Weighing for the Reform of Collective Construction Land Circulation: An Analytical Framework

本文引入法学利益衡量论,建立包括个体利益、阶层利益、制度利益和社会利益的分析框架,厘清集体建设用地入市改革的复杂利益关系。当前集体建设用地权能缺失导致流转不畅,土地资产功能难以显化。集体建设用地使用权入市改革涉及农民、集体、多级政府、不同开发商、使用者等诸多利益主体、阶层,以及多部法律法规,可能引发对社会利益格局的多重影响和激烈博弈。改革应以促进土地权益公平和统筹城乡发展为基本价值取向,土地流转收益优先用于增进农民利益,规范集体提留,限制乡镇政府参与利益分配;通过调整财权、事权兼顾县级政府利益,由市场调节开发商和使用者收益;重构法律以调整现行制度利益,保障土地规范流转;采取措施降低集体建设用地直接入市可能造成的农村两极分化、资源环境代价等负面影响。

A theoretical analytical framework composed of individual interests, group interests, institutional interests and social interest was built with referring to the theory of interests weighing to clarify the interest relationships of the reform of permitting transferring the rights of using collective construction land. The present power of the collective construction land is too limited to transact, which impairs the land＇s asset function. The reform might generate multidimensional interest effects, and a lot of interest subject and groups like farmers, collectivities, governments, developers and users and many laws as well are involved. Promoting fairness of land rights and coordinating rural and urban development should be prioritized. Make farmers＇ income increased, collective retention standardized, town governments＇ interests restricted and developers＇ and risers＇ earnings determined by the market when distributing land revenue. Readjustments are needed to cater to county governments＇ and institutional interests. Measurements are required to handling reform risks such as rural polarization and extra cost of resources and the environment.