基于内容分析法的集体建设用地流转政策演进分析

Evolution of Policies on Rural Collective-owned Construction Land Circulation in China based on Content Analysis Method

研究目的:总结中国农村集体建设用地使用权流转政策的演进趋势。研究方法:采用内容分析法和概括总结方法,以59份相关政策为样本,从出台时间、纵向层级和文本横向构成等方面构建分析框架,将政策文本内容进行编码统计获得定量化数据。研究结果:(1)政策数量由1978—1994年间的合计4项演变为1995—2014年间的年均3项,国家、省级及市县层面的分别占32.20%、11.86%和55.94%,涉及17省份;(2)政策形式多为通知、意见、管理办法等,效力层级较低;(3)政策内容经历了由禁止、严格限制再到探索规范流转的过程,涉及流转条件、方式、程序,交易主体、地价、收益及税费,法律责任及监督管理等方面。研究结论:现有政策体系不够完善、缺乏细则,难以有效应对新形势下集体建设用地流转的复杂性,提出科学开展政策评估、加快修改相关法律、出台国家层面指导意见及加强监管力度等建议。

The purpose of this study is to grasp the evolution trend of policies on rural collective-owned construction land use right circulation（RCCLC）in China. The methods used in this study include the content analysis method, summarization and induction. Use the fifty-nine RCCLC policies promulgated during 1978-2014 as samples, and build analysis framework based on three aspects in policies promulgation time, longitudinal hierarchy and horizontal composition. Then, the text content was encoded to obtain the quantitative data of policy evolution. The results show that 1 ） A large number of relevant policies have been promulgated, by total 4 items during 1978-1994, and evolution of annual average 3 items in 1995-2014. The proportion of policy numbers at national, provincial, and city （county） level is 32.20%, 11.86%, 55.94%, respectively. 2） The existing policies＇ forms are Notices, Opinions, and Management regulations and so on, therefore, the level of effectiveness of those policies is low, and the disciplining function is not strong. 3） Policy content experienced evolution process by banning, strictly limited to explore specification circulation, involving the circulation conditions, methods, procedures, trade subject, the land price, profit and taxes, legal responsihility, supervision and management. The study found that the existing policy system is still not perfect, as well as lack of detailed rules, and difficult to effectively deal with the complexity of RCCLC under the new situation. Therefore, policy suggestions are put forward such as evaluate policy performance scientifically, modify relevant laws quickly, and issue a national level guidance and strengthening supervision.