集体公益性建设用地政治与经济属性平衡论

The Balanced Theory of the Political and Economic Natures of the Public-use Collective Construction Land

研究目的:确定集体公益性建设用地的外延内涵并对其利用方式进行研究。研究方法:通过确立集体公益性建设用地与集体经营性建设用地、宅基地的区分标准,并对三者作对比分析,辨析公益性用地的基本属性。研究结果:(1)集体公益性建设用地与其他用地的共同属性在于其经济属性,其经济属性虽在降低农业活动交易成本、提高农产品质量、安置农村剩余劳动力、满足村民物质文化需求等方面有巨大发挥空间,却因其名称中所包含的"公益性"而产生了市场化要素不得进入的假象,从而处于未开发的状态;(2)集体公益性建设用地与其他用地的不同属性在于其政治属性,其政治属性在服务土地征收上已得到彰显,却因征收条件的宽泛和征收补偿的缺位而可能沦为纯粹满足征地需求的资源库。研究结论:对集体公益性建设用地的政治属性与经济属性的开发与利用不可偏废其一,前者的开发与利用需进一步约束,后者的开发与利用需大胆放开。

The Purpose of this study is to define the concept of public-use collective construction land and to explore its utilization methods. Criterion is set up to differentiate the public-use collective construction land, the commercial- use collective construction land, and the dwell-use collective construction land, comparing and discussing their commons and differences in nature. The results indicate that the common nature lies in the economic nature. However, although the economic nature of the collective construction land for public use has huge values in lowering transaction costs of agricultural activities, improving product quality, settling surplus rural labors, and satisfying physical and psychological needs of peasants, It has been kept undeveloped due to misunderstandings caused by its ＂public＂ title, like marketization should not be allowed, etc. The distinct nature of the collective construction land for public use is the political nature. However, although it has been explored in land expropriation, the broad prerequisite and the lack of compensation have jointly made the public-use collective land purely as the resources. Consequently, the political nature and economic nature of the public use collective land should be balanced in utilization, with more restraint on the former and less on the latter.