地票制度下的土地发展权:价值回归与功能续造

Land Development Right in Dipiao:Value Return and Function Continuation

在我国土地权利体系中,国有土地所有权中分离出的国有建设用地使用权在出让时与土地发展权一起被移转给受让人,但是由于用途管制和流转限制,集体土地的土地发展权却通过行政管理权被吸收,达到了隐形国有化的目的。实践中,这种“吸收”超过了土地价值的85%。重庆地票制度通过土地发展权的空间移转为“释放”和“回归”土地发展权的经济价值提供了一定的制度样本。然而这种改革是不彻底的,要实现统一的建设用地市场必须通过强化市场的方式完成对土地发展权的功能续造。在地票制度内部,完成对地票交易数量和交易范围的市场化改造;在外部,将征收模式统一为“项目性征收”,对于符合公共利益的建设项目,采取征收的方式,并以最高最优价值进行公平补偿,对非公共利益的建设项目,以地票为准入,进行市场化地协商购买。

In China's land rights system,the state-owned construction land use right separated from the state-owned land ownership was transferred to the assignee together with the land development right at the time of transfer,but due to the use control and transfer restrictions,the development right of collective land is assimilated by the administrative power,to the purpose of invisible nationalization.In practice,this“assimilation”exceeds 85%of the value of the land.The Chongqing Dipiao provides a certain sample of the system for the“release”and“return”of the economic value of land development rights through the spatial transfer of land development rights.However,this reform is not complete.To achieve a unified construction land market,it is necessary to complete the function of land development rights by strengthening the marketization.Within the Dipiao system,complete the market-oriented transformation of the number and scope of transactions;externally,build an unified“project-based expropriation”model,for public welfare program,getting land by eminent domain,along with just compensation under the principle of the highest and the best value,for non-public welfare program,getting land by using Dipiao as the basis for market-oriented negotiation and purchase.