农村集体建设用地制度改革:全局审度与远景展望
作者简介:陈明,中国社会科学院大学政府管理学院副教授,中国社会科学院政治学研究所副研究员(北京 100732)。
基金项目:
本文为中国社会科学院国情调研重大项目“深化农村集体经营性建设用地入市改革的进展与评估”(2024GQZD010)的阶段性成果
摘要: 中国农村集体建设用地规模庞大、类型多样、制度复杂,集体建设用地制度改革是深化土地制度改革最主要的边际增长点。过去十年间开展的集体经营性建设用地入市改革取得了显著进展,已经成为深化土地制度改革的重要牵引。不过,现阶段聚焦于经营性用地的改革尚未包含集体建设用地制度的全部内容,改革深度和广度都有待拓展。从当前改革试点来看,要下决心解决制约土地入市的历史遗留问题,以县域为单元统筹考虑入市土地的空间布局,强化村庄规划的严肃性和制度刚性。中国土地制度改革的远景目标是实现城乡形态现代化、土地权利平等化和土地管理规范化,这是深化集体建设用地制度改革的关键锚点和基本约束。从改革远景出发,还应当抓紧考虑集体公益性建设用地制度改革的方向和思路,并以改革协同和政策重组为重点提升土地管理水平。
Reform of the Rural Collective Construction Land System: A Holistic Assessment and Future Outlook
Abstract: China holds a vast stock of rural collective construction land, distinguished by its large scale, diverse categories and intricate institutional design. Deepening the reform of the collective construction land system is now the critical edge at which further land system reforms are advancing. Over the past decade, the rural collective commercial construction land marketization reform has advanced markedly. It has become a key lever for advancing the broader land system reform agenda. However, the present reform, which focuses almost exclusively on commercial-use land, has not addressed the full spectrum of the collective construction land system. As a result, its depth and breadth still need to be fully developed. Experience from the pilot regions indicates that three issues must be tackled resolutely: (1) resolving the historical legacy issues that still hinder marketization; (2) integrating the spatial layout of marketized land at the county scale; and (3) strengthening the authority and enforceability of village planning. The long-range goals of China's land system reform are modernizing the urban-rural spatial form, equalizing land rights, and standardizing land management. These goals serve as both the key anchor points and the fundamental constraints for deepening collective construction land reform. Looking ahead, the reform of collective public-interest construction land must be placed on the agenda without delay, and land management capacity should be upgraded through coordination of reforms and realignment of policies.