集体经营性建设用地权能实现研究——基于33个试点地区入市探索的分析

Research on the Realization of the Power of Collective Operating Construction Land——Analysis Based on the Practice of 33 Pilot Areas

在现行法框架下,集体经营性建设用地权能实现受到极大限制。集体经营性建设用地入市改革的目标是实现集体经营性建设用地与国有建设用地的同地同权。2015年以来的改革试点探索在促进集体经营性建设用地权能实现方面取得了四大成效:集体经营性建设用地从不允许入市到允许入市,集体经营性建设用地使用权被赋予了与国有建设用地使用权基本相同的权能,市场主体对集体经营性建设用地权能的认同度总体大幅提高,入市主体的自主意识和能力逐步提升。但同国有建设用地相比,试点实践中集体经营性建设用地在权能实现上仍存在一些差异性因素,主要呈现为两个层面的9个因素,具体包括规则设计层面的入市范围、入市用途、抵押条件、土地登记、税费体系等因素,以及实施层面的入市方式偏好、契约能力、认可程度、市场发育程度等客观环境因素。在此基础上针对下一步深化改革提出四方面的政策设计和立法建议:进一步完善入市规则体系,消除不平等规则;深化改革探索,回应集体土地的独特需求;完善多层级立法,巩固改革成果;加大市场培育力度。

According to the current law,the power of collective operating construction land is greatly restricted.The goal of the reform on putting collective operating construction land into market is to give the collective operating construction land equal rights as the state-owned construction land.Since 2015,the exploration of 33 pilot areas have achieved four major results in promoting the power of collective operating construction land:firstly,collective operating construction land is allowed to enter the market;secondly,collective operating construction land use rights are endowed with basically the same rights and functions as state-owned construction land use rights;thirdly,market participants generally have a large degree of recognition on the rights and functions of collective operating construction land;fourthly,the consciousness and ability of peasant-collective on operating collective construction land are improved gradually.However,compared with the state-owned construction land,there are still some differences in the realization of rights on collective-operated construction land,which are mainly manifested in nine factors at two levels.At the rule design level,those factors include the area restriction,the use restriction,special mortgage conditions,special land registration rules and tax and fee system.At the rules’implementation level,those factors include the preference for trading methods,peasant-collective’s ability to sign and perform contracts,market acceptance,and market development.On this basis,four suggestions are put forward for further reformation:further improving the system design and eliminating unequal rules,deepening reform exploration to respond to the unique needs of collective land,accelerating multi-level legislation to consolidate reform achievements,and increasing market cultivation.