江苏省“万顷良田建设工程”中集体建设用地流转增值收益分配与机制创新

摘要

The purpose of the paper is to expose the land benefit distribution and its development mechanism in the rural land transfer, and to build a new benefit distribution mechanism on ensuring farmer's right, especial on sharing land benefit for long term. Method employed is involved in government department investigation, case analysis, epagoge and consequence. The results indicate: based on "Ten-Thousand-Hectare Fertilize Land Development Project (TFLDP)", farmers' resident land is centralized and re-allocated. Each farmer household may get two or more units of apartment with better location and infrastructure, and one of them may be hired by farmer household as the way to share the added value of the land. It is an improvement for farmers to share the added value of the land for long term compared to get the less compensation in cash for one-shot during land expropriation. It is concluded that 1 ) TFLDPis a project controlled entirely by government and implements in binary land system. Transference & re-allocation of collective-owned constructed land at the project is completed mainly by the way of land expropriation, which does not endow the collective-owned land with equal rights to state-owned land; 2) the opportunity and path to enjoy land added value is an outcome of government decision-making at project rather than that of land property system; 3) it is necessary to eliminate government monopolization of constructed-land market for ensure farmers right on land benefit, and give farmers rights to participate in land market independently and formed land price after bargaining with farmers, and government provide land planning and market service.%研究目的：揭示农村集体建设用地流转中的土地增值收益分配关系及其分配机制，构建农民长期分享土地增值收益分配的机制。研究方法：部门调研、案例分析与归纳推理。研究结果：以“万顷良田建设工程”项目为依托的农村集体建设用地的流转，通过对农民住宅拆迁补偿与宅基地置换安置，使农民获得了区位条件更好的两套以上的公寓住宅，为农民通过“房东经济”长期分享城市化进程中的土地增值收益创造了基本的条件，与现有的土地征收一次性补偿相比有所改进。研究结论：（1）“万顷良田建设工程”完全是政府主导下的土地流转，其中的集体建设用地流转与配置主要通过土地征收实现，本质上并没有突破“城乡二元土地制度”的制约，仍然没有赋予集体土地与国有土地平等的权利；（2）农民分享土地增值收益的路径和机会的多少完全取决于政府在项目中的价值取向和决策，而非基于土地产权制度创新的结果；（3）保障农民长期稳定地分享土地增值收益仍需要打破国家对集体建设用地的垄断，让集体土地所有者在规划控制下自愿平等地、直接地参与土地市场交易，主导土地要素的定价权。