农村集体建设用地建设租赁性住房问题研究

The Problems in the Construction of Rental Housing on Rural Collective Construction Land and Its Countermeasures

利用农村集体建设用地建设租赁性住房,打破了农村土地不经征地程序不得用于城市相关产业发展的法律政策限制,使得农村集体建设用地能够直接用于发展城市租赁性房地产业。这有利于增加租赁住房供应、缓解中低收入群体的租房困难,构建购租并举的住房体系,建立健全房地产平稳健康发展长效机制。为了服务于这项事关集体土地制度和城市住房制度的政策创新得以顺利推进,形成一批可复制、可推广的改革成果,实现利用农村集体建设用地建设租赁性住房试点方案尽快完善得以在全国范围内实施。基于大规模外业问卷调查获取的微观数据和利用农村集体建设用地建设租赁性住房的实际案例材料,深入剖析在利用农村集体建设用地建设租赁性住房过程中可能遇到的资金来源、租金水平确定、收益分配、违法违规以及对城市住房租售市场带来的冲击等一系列问题,并针对性地提出相应的对策与建议。在资金来源方面,农村集体建设租赁性住房的资金来源应该通过集体经济组织独资、集体经济组织号召下的农民集资与建设用地抵押相结合、联营和入股等多种途径解决。根据竞争性和非排他性的满足条件,将农村集体建设租赁性住房的配套基础设施和公共服务设施划分成纯公共物品和准公共物品,进而确定相应的投资主体。在租金价格确定上,农村集体建设租赁性住房的租金水平应该参照同一市场供需圈范围内同类型、同档次商品住宅对外出租价格,在区域因素、个别因素以及城乡地价差异等因素进行对比的基础上做减价修正确定。在利益分配上,农村集体建设用地建设租赁性住房对外租赁所获的收益,按照"‘谁投资,谁受益’、体现集体建设用地权利、兼顾成员权"的原则,构建起政府部门、集体经济组织、投资方和农民共同受益的利益分配格局。在治理违法违规上,应统筹规划、合理布局农村集体经济组织建设的租赁性住房,同时,强化政府部门的过程监管。在对城市住房租售市场的冲击以及相关利益群体的冲击上,应该制定集体土地与国有土地并行供地的规则,评估对住房交易和租赁市场的影响,以化解城镇化过程中的主体间利益冲突。

The use of rural collective construction land for the construction of rental housing has broken the legal and policy restriction that rural land may not be used for the development of urban-related industries without land expropriation procedures.As a result,the rural collective construction land can be directly used for real estate development for urban rent,which is conducive to increasing the supply of rental housing,alleviating the difficulties of renting of the middle-and low-income groups,building a housing system that combines purchasing and renting,as well as establishing and perfecting a long-term mechanism for the steady and healthy development of real estate.To make sure the policy innovation related to the collective land system and urban housing system complements smoothly,a number of replicable and popularized reform results can be formed.Based on the questionnaire survey data and practical cases,this paper deeply analyzes a series of problems that may be encountered in the process of using the rural collective construction land for the construction of rental housing,such as the source of funds,the determination of rent level,the distribution of income,the violation of laws and regulations and so on.At the same time,the corresponding countermeasures and suggestions for those problems are also put forward in the paper.In terms of the source of funds for the collective construction of rental housing in rural areas,it should be solved through various ways,such as the sole proprietorship of the collective economic organization,the combination of the peasants’fund-raising under the call of the collective economic organization and the mortgage of the construction land,as well as the joint venture and the purchase of shares.According to the competitive and non-exclusive conditions,the supporting infrastructure and public service facilities for the collective construction of rental housing in rural areas are divided into pure public goods and quasi-public goods,so as to determine the corresponding investment subjects.In terms of the determination of renting price,the rental level of the rental housing for collective construction in rural areas should be determined and revised with reference to the same type and grade of commercial housing within the same supply and demand circle of the same market.In terms of benefit distribution,the benefit distribution pattern of government,collectivity,investor and farmer can be set up according to the principle of“investors are beneficiaries”,which embodies the right of collective construction land and takes into account the rights of members.In terms of dealing with the violations of law and regulations,relevant institutions should make overall planning and rationally distribute the rental housing built by rural collective economic organizations,as well as strengthen the process supervision of government departments at the same time.As for the impact on the urban housing rental market and the impact on relevant interest groups,the rules for the parallel supply of collective land and state-owned land should be formulated to assess the impact on the housing transaction and rental market,and to resolve the conflict of interests between the entities in the process of urbanization.