作为公共政策的土地发展权——关于建立城乡统一的建设用地市场的思考

LAND DEVELOPMENT RIGHTS AS A PUBLIC POLICY: THOUGHTS ON ESTABLISHING A UNIFIED CONSTRUCTION LAND MARKET IN URBAN AND RURAL AREAS

《中共中央关于全面深化改革若干重大问题的决定》提出了“建立城乡统一的建设用地市场”的改革命题。然而作为其核心议题的集体建设用地平等入市一直是学界争论的议题。关于集体建设用地的平等入市不是简单的一一对比的问题,而是在国土空间规划体系构建中基于社会公平的土地使用的制度设计问题。本文认为建立城乡统一的建设用地市场应当基于宪法秩序,坚持土地发展权国有的制度,完善土地发展收益的分配与再分配体系,建立从乡村到城市建设用地的转换机制。这是中国改革开放40年后土地产权制度进一步完善的过程。只有把土地发展权作为国土空间规划体系中实现社会公平的公共政策,才能更公平、更简单、更可操作地推进集体建设用地平等入市。

The CPC Central Committee has put forward the reform proposition of establishing a unified construction land market for urban and rural areas in the Decision About Comprehensively Deepening the Reform on Some Major Issues.However,as its core issue,the equal market entry of collective construction land has always been a controversial topic in the academic community.The equal market entry of collective construction land is not a simple problem of one-to-one comparison,but a result of institutional design about land use based on social equity in the establishment of territorial planning system.The paper argues that the establishment of a unified construction land market in urban and rural areas should be based on the constitutional order,adhere to the state-owned system of land development right,improve the distribution and redistribution system of land value-added income,and establish the transition mechanism from rural to urban construction land.This is the process of further improving the land ownership rights system after 40 years of reform and opening-up in China.Only by taking the land development right as a public policy to achieve social equity in the territorial planning system,can the equal market entry of collective construction land be promoted in a fairer,simpler,and more operable way.