集体经营性建设用地开发商品住宅试验考察与推进建议——以广西北流、河南长垣、山西泽州的试点改革为例  

Experimental Investigation and Suggestions for the Development of Commercial Housing on Commercial Collective-owned Construction Land:Taking the Pilot Reforms of Beiliu in Guangxi,Changyuan in Henan Province and Zezhou in Shanxi Province as examples

作　　者：岳永兵 刘向敏 YUE Yong-bing;LIU Xiang-min(Chinese Academy of Natural Resources Economics,Beijing 101149,China)

机构地区：[1]中国自然资源经济研究院,北京101149

出　　处：《西部论坛》2022年第3期98-108,共11页West Forum

基　　金：自然资源部项目“深化农村土地制度改革研究”(121102000000190002)。

摘　　要：集体经营性建设用地入市开发商品住宅,有利于建立城乡统一的建设用地市场和多主体供给、多渠道保障、租购并举的住房制度。然而,对于集体土地能否开发商品住宅还存在较大争议,且在已进行的集体经营性建设用地入市试点改革中较少涉及商品住宅开发项目,相关研究也缺乏对其收益分配和具体操作的深入探讨。本文对河南长垣、山西泽州、广西北流3个试点地区进行的集体经营性建设用地开发商品住宅试验的分析发现:政府、集体和企业均可在集体土地开发商品住宅中实现利益增进,三者利益的契合是改革的创新动力;进行商品住宅开发的集体经营性建设用地大都位于城市规划区外的乡(镇)驻地所在村或中心村,而规划建设区虽然是集体经营性建设用地开发商品住宅潜力最大的区域,但也是改革成本最大、收益平衡难度最大的区域,因而未成为集体经营性建设用地开发商品住宅试验的首选区位;试点地区通过制定差异化的增值收益调节金征收标准、捆绑公共基础设施项目、收取增值收益平衡再分配金等方式,基本实现了不同主体间的利益平衡。可见,集体经营性建设用地入市开发商品住宅,既符合改革的方向,也有现实的需求,并可通过适当的规制妥善解决利益平衡问题。《土地管理法》的修改为集体经营性建设用地入市扫除了制度障碍,但集体土地开发商品住宅受到政策导向不明、配套制度缺位、收益分配机制不健全、基础条件不具备等的影响,实践进程停滞。建议尽快部署新一轮集体经营性建设用地入市改革试点工作,并将集体经营性建设用地开发商品住宅作为试点的重点内容,鼓励试点地区将集体建设用地开发商品住宅的试验从城中村和城市规划区外逐步扩大到规划建设区、从存量集体建设用地逐步扩大到新增集体建设用地,积极探索建立�The commercial collective-owned construction land entering the market to develop commercial housing is conducive to the establishment of a unified urban and rural construction land market and a housing system with multi-subject supply,multi-channel guarantee,and encouragement of both renting and purchasing.However,there is still a big controversy over whether collective land can be used to develop commercial housing,and in the pilot reforms of commercial collective-owned construction land entering the market,fewer commercial housing development projects are involved,and related research also lacks in-depth discussion of its income distribution and specific operation.This paper analyzes the experiments of developing commercial housing on commercial collectively-owned construction land in three pilot areas,including Changyuan in Henan province,Zezhou in Shanxi province,and Beiliu in Guangxi,and finds that the government,collectives,and enterprises can all profit from the development of commercial housing on collective land.The alignment of the interests of these three parties is the driving force of innovation;most of commercial collective-owned construction land for the development of commercial housing is located in the village or central village where the township(town)station is located outside the urban planning area,and although the planning and construction area in the commercial collectiveowned construction land is the area with the greatest potential for the development of commercial housing,it is also the area with the greatest reform cost and the greatest difficulty in balancing the income,so it has not become the preferred location for the experimental test of developing commercial housing on commercial collective-owned construction land;by formulating differentiated collection standards for value-added income adjustment fees,bundling public infrastructure projects,and collecting value-added income balance redistribution fees,the pilot areas have basically achieved the balance of interests among differe

关 键 词：集体经营性建设用地 入市 商品住宅开发 增值收益分配 建设用地市场 

分 类 号：F301.2[经济管理—产业经济] F293.31