我国土地用途管制改革的法理求解

The Legal Solution of the Land Use Regulatory Reform in China:Thinking on the Strategy of “Ensuring National Food Security”for the Nineteenth Congress

我国现行土地用途管制在实践运行中呈现出失灵状态,须对其作理性地检讨,并从世界观和方法论两大维度提出切实可行的改革和完善方案。综观现有理论和实践,立足于"权利—权力"平衡的规范语境,从系统论、制度联动效应等视角出发,我国现行土地用途管制改革宜践行以下"一揽子"方案:在理念上应建立多元利益诉求均衡实现的制度样态体系;在逻辑前提上应积极推动我国土地规划模式由"增量"向"存量"的转型;在关键内容上应突破现行农用地转用审批的封闭运行结构;在技术路线上应创新"两个总量指标控制"的实现方式,力争实现土地用途管制的弹性化目标;在配套跟进上应有效推进存量建设用地再开发法律制度建设。唯有如此,方可有助于突围这一制度运行失灵的困境,有助于实现十九大报告所提出的"确保国家粮食安全"这一重大战略目标。

Land use control presents a state of operational failure in our country.It is necessary to make a rational review of it and propose reforms and improvements of practical and feasible from the two dimensions of world outlook and methodology.Looking at existing theories and practices,based on the normative context of"right-power"balance,China’s current land-use control reform should implement the following"package"program:in terms of conception,we should establish a system of patterns whicih balanced realization of multiple interests appeal;in terms of logical premise,we should actively promote the transformation of China’s land planning model from"incremental"to"inventory";in terms of the key content,we should break through the closed operating structure of agricultural land transfer approval;in terms of the technical route,we should innovate the realization of the"two aggregate indicator controls";in terms of supporting follow-up,we should effectively promote the construction of a legal system for the redevelopment of stock construction land.Only in this way can it help to break through failure and contribute to the major strategic goal of ensuring the national food security and putting firmly the Chinese people’s rice bowls in their hands as set out in the report of the 19th National Congress of CPC.