土地开发权转移制度在禁限建区管控中的应用研究

A Study on the Application of Transfer of Development Rights on the Controlling of Prohibited-construction and Restrained-construction Areas

快速城镇化进程中,乡村成为城市禁限建区的主要组成部分,在城乡二元土地制度下,为了保护耕地和基本生态用地,有限的建设用地指标多被用于城市建设,严格的建设用地管制忽视了乡村正当的发展诉求,农用地流转过程中利益平衡机制的缺失导致规划失效。开发权转移制度作为国外一项成熟的规划控制手段,在禁限建区管控中能发挥利益杠杆作用,协调保护与发展的关系。基于中外实践比较和成功经验总结,运用市场化手段,我国开发权转移制度可更广泛应用于禁限建区内的农业、生态与历史资源保护。我国土地制度确立了集体土地享有"存量土地开发权"与"潜在土地开发权"。引入开发权转移制度,针对禁限建区优化存量、严控增量的土地管控要求,一方面对原建设用地进行复垦复绿,腾出的"存量土地开发权"通过市场交易转移,体现土地的真实价值,实现多方共赢;另一方面乡村因提供公共产品而空间增长权利受限,"潜在土地开发权"受损,应当以公共财政进行补偿,体现社会公平。

With rapid urbanization, rural regions have become a major component of prohibited- construction and areas. For the protection of farmland and ecological areas, the limited quota of construction is mainly used in urban areas. Strict controlling deprives rural areas of the rights of development and the lack of balance of interest leads to failure of planning. As an effective planning method, Transfer of Development Rights （TDR） can harmonize development with protection of environment. In our country, TDR should be more widely used in protecting natural and historical resources and should be market-oriented. According to land laws, collective land enjoys existing and potential development rights. The storage of land in prohibited-construction and restrained-construction areas should be optimized and the increment should be strictly controlled. For one thing, land should be first reclaimed and existing development rights can be transferred through market, so that true value of collective land can be epitomized. For another, development rights of rural areas are impaired because of providing communal product. Public finances should be subsidized by the government for the deprivation of potential development rights.