留用地权益实现的制度困境与转型思考——基于用途管制制度和产权制度的分析  

Institutional Dilemmas and Transformation Thoughts on the Realization of the Rights of Rural Reserved Land:Analysis based on Land Use Control System and Property Rights System

作　　者：李渊文 但俊 吴军[1,2,3] 冯萱 李邵华[1,2,3] LI Yuanwen;DAN Jun;WU Jun;FENG Xuan;LI Shaohua

机构地区：[1]广州市城市规划勘测设计研究院有限公司,广东广州510060 [2]广州市资源规划和海洋科技协同创新中心,广东广州510060 [3]广东省城市感知与监测预警企业重点实验室,广东广州510060

出　　处：《城市发展研究》2024年第5期111-117,共7页Urban Development Studies

基　　金：广东省重点领域研发计划资助(项目编号:2020B0101130009);广东省城市感知与监测预警企业重点实验室基金项目(项目编号:2020B121202019);广州市城市规划勘测设计研究院有限公司科技基金项目“以政府收储方式推动留用地统筹利用研究——以广州为例”(项目编号:RDP2220202071)。

摘　　要：在对留用地政策内涵解读的基础上,搭建了基于用途管制制度和产权制度的留用地权益实现分析框架,并对其权益实现的运行机制和制度困境进行解析。最后,基于对留用地权益实现机制转型逻辑的理解,结合地方探索,提出相关政策建议。研究主要结论如下:(1)留用地具有政策、空间和经济方面的三重属性,作为一项特殊的土地政策安排,留用地权益的实现过程既是基于其空间属性的土地利用过程,也是基于其经济属性的土地增值收益分配过程,并由此受到用途管制制度和产权制度的深刻影响;(2)留用地权益实现过程受到用途管制不断强化和产权模糊状态的双向“挤压”,使得被征地农民的长远生计难以得到有效保障,也致使社会总体福利受到损失;(3)伴随宏观政策的变化,留用地权益实现将从“强管制、弱产权”转向“强管制、强产权”,为适应留用地权益实现机制的转型,应当从拓展留用地权益实现路径和完善留用地产权安排设计两个方面完善留用地政策设计。Based on the interpretation of the connotation of rural reserved land,this study builds an analytical framework for the realization of the rights of rural reserved land based on the land use control system and property right system,and analyzes the operational mechanism and institutional dilemma of the realization.Finally,based on the understanding of the transformation logic of the mechanism for the realization of the rights of rural reserved land,combined with local exploration,relevant policy recommendations are proposed.The main conclusions are as follows:(1)Rural reserved land has three attributes of policy,space and economy.As a special land policy arrangement,the realization process of the realization of the rights the realization of the rights which is deeply affected by the land use control system and property right system.(2)The process of the realization of the rights of rural reserved land is"squeezed"by the continuous strengthening of land use control and the ambiguity of property rights,which makes it difficult to effectively guarantee the long-term livelihood of farmers who have been expropriated,and also leads to a loss of overall social welfare;(3)With the changes in macro policies,the realization of the rights will shift from"strong regulation and weak property rights"to"strong regulation and strong property rights".To adapt to the transformation of the mechanism for realization of the rights of rural reserved,the design of retained land policies should be improved from two aspects:expanding the realization path of rural reserved land rights and improving the design of rural reserved land property rights arrangement.

关 键 词：留用地 权益实现 用途管制制度 产权制度 

分 类 号：F301.0[经济管理—产业经济] F311