三项土地制度改革试点中的土地利用问题

Land-use problems in the three pilots of the land-system reform

2015年开始的三项土地制度改革试点在理念和实施方面都存在一定的问题。征地制度改革的核心诉求是"缩小征地范围",结果仅仅是增加了优势区位农民的收益,助长了国家和农民之间征地的冲突,从而加大了土地利用规划执行的难度;集体经营性建设用地入市,最大的获利者是已经从集体土地非农使用中获得大量收益的沿海城市带农村的农民,而且允许农村宅基地调整入市,将对现行土地制度基础上的土地利用规划的制定和实施极为不利;在农村宅基地制度改革中,地方普遍存在把宅基地当作所谓的"资产"来开发,希望借此解决农民财产收入问题和农村土地利用粗放等问题,其结果不仅扰乱了农村土地利用规划,而且对农民造成了极大的风险。在当前中国快速城市化时期,严格界定公益性与非公益性用地范围,缩小征地范围,不仅不会减少征地冲突,反而会加剧征地过程中国家和农民的利益紧张和对立。相对于拟修改的征地制度,现行征地制度更适合当前中国国情,更能体现中国土地公有制的宪法秩序。将发达地区土地利用的教训或者说将先行地区的劣势复制到本来可以发挥后发优势的中西部地区的主张与实践,值得学界及政策部门深思与警惕。

There exist some problems in both theory and practice about the three pilots of the land-system reform. The core appeal of land-expropriation system reform is to ＂narrow down the range of land expropriation＂, but the reform turns out to enlarge the benefits of the farmers in privileged areas, and to foster the conflicts between the country and farmers, hence increasing the difficulty of executing land-use planning. With the collective-run construction land going into the market, the greatest beneficiary from it are those country farmers in the cities along the coast lines who have gained a lot from non-agricultural use of collective land. And allowing rural homestead land to be adapted into the market is of great harm to making and executing land-use planning. As to the reform of rural homestead system, the local tends to develop the homestead as asset, hoping to solve problems in this way such as income of farmers＇ properties and extensive use of the rural land. As a result, the rural land-use planning is disrupted, and huge risk is brought to the farmers. At the current time of rapid urbanization in China, the ranges between public-welfare land and non-public land should be strictly specified, and the range of land expropriation should be narrowed down, which, rather than decreasing the conflicts in expropriating land, will worsen the tension and opposition in interests between the country and the farmers. In comparison with articles about the land expropriation to be amended, the current land-expropriation system better suits China＇s actual condition at the present, and can better embody the constitutional order in China＇s public land ownership. The idea and practice will be of profound reflection and warning to both academia and police sector to copy lessons from the land use in developed areas, or the disadvantages of the forerunner areas to mid-west China which could be more privileged after taking full advantage of the reform.