农用地开发许可权市场化改革路径之选择

Market-oriented Reform of Agricultural Land Development Permission

长期以来,受传统计划经济体制和路径依赖惯性的影响,在农用地开发许可权制度目标的实现方式上,无论是实定法还是实践,主要践行的都是单一的"命令—服从"式的公法模式,掩蔽和淡化了地方政府、农地权利人、集体经济组织等多元化主体的利益诉求。实践中,包括地方政府在内的诸多主体,绕开和规避农用地开发许可权的违法违规用地行为频繁而又普遍,从而在一定意义上宣示了这一权力的运行步入了失灵的困境。为此,立足于当下的客观实际,面向市场化的价值取向来改革我国现行农用地开发许可权,以积极回应多元化主体的利益诉求,从而突破这一权力运行之困境,已成学理之共识。基于当下诸多土地改革试点方案之观察,可以得出:我国农用地开发许可权市场化改革,在具体的路径层面,存在初级形态下的"土地换保障"模式、中级形态下的建设用地"增减挂钩"模式和高级形态下的"地票"交易模式。这三种模式利弊共存,但立足于现有制度资源的约束条件、遵循三种模式内在的变迁规律、对不同模式社会效果之比较以及综合考量其成本和效益等因素,"地票"交易模式应是实现我国农用地开发许可权市场化改革目标的最优化路径,或者说是"最不坏"的选择。现行法应借由相应的法技术对其做出积极的回应,以实现其在实定法上的"落地生根"目标。

Influenced by the traditional planned economy and path-dependent inertia, agricultural land development permission, in real law or in practice, is mainly realized through the single public law model of “command-comply”, inattentive to the interests of various subjects, such as local governments, agricultural land-right holders, collective economic organizations.In practice, illegal land use is widespread for many subjects including local governments, that circumvent development permission of agricultural land, with the operation of this rights entering a dilemma to a certain extent. Market-oriented reform of agricultural land development permission is widely believed to be a possible solution to cater to the needs of diversified subjects. Based on the observation of many pilot land reform programs, it can be concluded that the market-oriented reform of agricultural land development permission in China is threefold, with the primary form of “land in exchange for social security”, the intermediate form of “the increase and decrease equilibrium” of land for construction and the advanced form of “votes transactions”. These three models have their pros and cons. Analyses were conducted on the constraints of existing institutional resources, the inherent changes, social effects, costs and benefits of these three models and other relevant factors. It is concluded that “votes transactions” is the optimal way to achieve market-oriented reform of agricultural land development permission in our country, or the option “with the least amount of defects”. The current law should respond positively to it by corresponding law techniques, so as to let it “take root” in the real law.