作　者：罗瑞芳
关键词：集体经营性建设用地入市；成片开发土地征收；城乡融合；协同机制；统一国土空间规划；统一土地收益分配
摘　要：

构建集体经营性建设用地入市与成片开发土地征收之间的协同机制，实现两种方式在保障合理用地需求方面的有机统一，对激活农村土地要素、促进城乡融合发展和乡村振兴具有重要意义。入市与成片开发共同承载着优化土地资源配置、提升空间治理效能的目标，但在具体功能定位上各有侧重。制度目标的一致性和制度功能的互补性是协同的理论基础。城乡统一的建设用地制度体系所蕴含的“规划权—征收权/所有权—开发权”运行框架，构成协同的制度逻辑。统一的国土空间规划是协同实施的前提。“五级三类”规划体系、规划技术指标要求及规划中的民主协商机制从不同层面引导两者在资源配置、空间利用等方面实现科学对接与高效配合。统一的土地收益分配机制是协同实施的保障。共同遵循市场初次分配与政府再分配相结合的分配逻辑、完善成片开发的市场价格形成机制、明确政府通过增值税参与分配是统一土地收益分配的关键策略。

 

The Legal Mechanism for the Coordination Between the Marketization of Collective Land Designated for Business-related Construction

And the Expropriation and Development of Tracts of Land

Luo Ruifang（Beijing Academy of Social Sciences）

Abstract Establishing a synergy mechanism between two systems of market entry for collective construction land for commercial use and land expropriation for tract development is of great significance in activating rural land elements and facilitating integrated urban-rural development as well as rural revitalization. As two ways of land supply, they jointly carry the unified objective of ensuring reasonable land demand, optimizing land resource allocation and improving the efficiency of space governance. However, their functional orientation also has its own emphasis. Therefore, the two should work in coordination. The operational frame‐ work of "planning right-expropriation right/ownership-develop right" inherent in the urban-rural unified construction land system constitutes the institutional logic of synergy. Unified national territorial space planning constitutes the premise of synergy. The "five-level and three-category" planning system, technical indicators and the democratic consultation mechanism within planning guide the two to achieve scientific and efficient coordination in resource allocation and spatial utilization. A unified distribution system of land value increment is the guarantee for synergy. Following the distribution logic that combines the market-based primary distribution with government redistribution, refining the market-oriented price formation mechanism for land expropriation for tract development and defining the government's participation in distribution through value- added tax constitute the key strategies.

Key words marketization of collective land designated for business-related construction; expropriation and development of tracts of land; urban-rural integrated development; coordination mechanism; unified national territorial space planning; unified system of land revenue distribution

 

■    作者简介  罗瑞芳，北京市社会科学院法治研究所副研究员，北京 100101。

[PDF]（下载数：）