土地产权、土地整理与乡村规划：农村集体建设用地统筹利用实施机制研究

The experience of developed western countries proves that the process of rural modernization is often accompanied by continuous land readjustment which aims at intensive and sustainable land utilization through restructuring the spatial layout of land properties. In China, the dual urban-rural land system puts the countryside in an obviously disadvantageous situation in urbanization and the existing land property right system of rural collective-owned constructible land makes towns and villages suffered for a long time from the problems of scattered construction land layout, low land-use efficiency, and waste of land resources, both of which seriously hinder the sustainable rural development of China. As China is now in a critical period of socio-economic transition, the intensive and sustainable utilization of land, as the fundamental element of living and production, will become the key to a healthy rural development. Under the circumstance of rural land system reforms, this project, taking rural collective-owned constructible land as research objective, will carry out both theoretical and empirical studies on land readjustment and rural planning which aims at the integrated utilization and highlights the spatial restructuring of rural collective-owned constructible land. It will analyze the influences of the existing rural land property right system on the spatial layout and land-use of towns and villages and prove the necessity of the spatial readjustment of rural land properties. On the basis of rural land property rights clarification, it proposes to set up the implementation mechanism of land readjustment, and the land benefit sharing mechanism as well, and innovate the working mechanism of rural planning system, so as to promote the implementation of land readjustment and rural planning that reflect the farmers' willingness and respect the farmers' interest. The outcome of this fundamental and forward-looking research will serve to support the relative policy-making of the governments.

西方发达国家经验表明，乡村现代化往往伴随持续的土地整理，通过调整土地产权空间布局，促进土地的集约和可持续利用。我国城乡二元土地制度导致乡村在城镇化进程中处于明显劣势，现行农村集体建设用地产权制度导致村镇长期存在建设用地布局分散、土地利用效率低下、土地资源浪费严重等问题，严重制约乡村健康发展。目前我国正处社会经济发展转型期，土地作为生产和生活基本要素，其集约和可持续利用可谓乡村发展关键。本项目在农村土地制度改革背景下，以农村集体建设用地为研究对象，围绕以统筹利用为目标、以产权空间调整为核心的土地整理和乡村规划进行理论和实证研究，分析现行农村土地产权制度对村镇空间布局和土地利用的影响，探讨在农村土地产权明晰前提下，通过调整土地产权空间结构，建立土地整理实施机制和土地收益分配机制，创新乡村规划工作机制，推动实施反映农民意愿、保护农民权益的土地整理和乡村规划，并为相关政策制定提供建议和支撑。

改革开放以来，在我国快速城镇化进程中，乡村发展成就显著，但在建设用地方面，受土地产权影响，普遍存在用地布局分散、利用效率低下、浪费现象严重等问题。2008年《城乡规划法》强化了乡村规划的法定地位，但因其与土地产权脱节，在实践中暴露出可实施性不足的问题。集体建设用地作为乡村发展的基本要素，其集约高效利用是乡村现代化和可持续发展的关键。项目针对集体建设用地，从土地产权、土地整理和乡村规划三个重点入手，着重探讨了以下内容：一是通过理论推演，阐释了包括集体建设用地在内的土地开发权的概念内涵，构建了基于土地开发权的规划制度解析框架；二是以“土地制度—空间形态—土地绩效”为逻辑主线，分析了集体建设用地产权制度对于乡村空间形态和土地利用效益的影响，及其在不同地方实践中的不同体现；三是通过总结国内外土地整理的实践经验，结合我国农村土地制度和乡村规划制度安排，分析了土地整理的实施机制和收益分配制度；四是从权利界定、行为管控和利益分配三个视角，实证了通过乡村规划促进集体建设用地统筹利用，更好实现集体建设用地土地开发权的机制创新。项目研究认为，第一，土地开发权属于私权利性质但其实现过程应受到规划公权约束，土地开发权利的明晰界定、适应权利特征的行为管控模式、利益分配的公私共享分别是规划体系构建的基本前提和价值目标；第二，尽管在国家统一的农村土地制度框架下各地有不同的实践探索，但明晰各类产权、完备产权属性、丰富产权权能和有效保护产权是通过乡村规划实现集体建设用地统筹利用的前提；第三，集约高效的土地利用模式、活化土地资产的资金运作模式和尊重产权主体并发挥政府作用的融合治理模式是创新乡村规划实施机制的关键。项目研究探讨了土地开发权的概念内涵，构建了基于土地开发权的规划制度解析框架，提出了农村集体建设用地统筹利用及实施的总体思路，对于乡村规划和农村土地改革实践以及相关的政策制定具有参考价值。