發(fā)布時間：2019-06-21 02:30

【摘要】：1990年初開始,在珠江三角洲、長江三角洲及一些大城市郊區(qū),農(nóng)民利用政策和法律空間,自己創(chuàng)建標準廠房、倉庫和店鋪等用于出租；或者干脆不顧法律限制,直接進行土地的非法出租,遂以形成集體建設用地流轉(zhuǎn)的“隱形”市場,且流轉(zhuǎn)的數(shù)量和規(guī)模呈不斷擴大之勢。農(nóng)村集體建設用地使用權(quán)自發(fā)、私下的隱形流轉(zhuǎn)市場的存在,不僅嚴重干擾了國有土地市場的正常運行,而且造成集體土地收益大量流失,農(nóng)民的利益得不到保護；流轉(zhuǎn)過程中擅自更改土地用途使大批耕地非農(nóng)化,給我國糧食的持續(xù)供給造成壓力。無償、無流動的集體建設用地使用制度扭曲了土地的資產(chǎn)屬性,無法發(fā)揮市場機制優(yōu)化配置資源的作用,不利于農(nóng)村土地的優(yōu)化配置和保值增值,不利于農(nóng)民土地權(quán)益的保護。我國現(xiàn)行限制農(nóng)村集體非農(nóng)建設用地入市的相關(guān)法律制度已被實踐證明陷入制度危機中。農(nóng)村集體建設用地使用制度改革已呈不可逆轉(zhuǎn)的發(fā)展趨勢,這是一個不容回避的難點、熱點問題。 論文從法律經(jīng)濟學角度,綜合運用土地產(chǎn)權(quán)理論、制度經(jīng)濟學理論和法經(jīng)濟學理論等有關(guān)分析方法和分析工具,以農(nóng)村集體建設用地使用權(quán)為切入點,以流轉(zhuǎn)為核心范疇,研究了農(nóng)村集體建設用地使用權(quán)流轉(zhuǎn)的法律制度創(chuàng)新問題。論文在農(nóng)村集體建設用地法律制度變遷分析的基礎上,考察了農(nóng)村集體建設用地的法律制度的績效和缺陷,并重點運用法律經(jīng)濟學的理論方法和研究范式探討了集體建設用地使用權(quán)流轉(zhuǎn)的必要性和可行性。接著,總結(jié)歸納了全國各地在鄉(xiāng)(鎮(zhèn))村企業(yè)建設用地、宅基地使用制度改革實踐中的模式、經(jīng)驗和教訓,以期為上文的理論分析做支撐。最后在“問題——原因——反饋”的邏輯思路下,對農(nóng)村集體建設用地使用權(quán)制度進行了改革和創(chuàng)新,并給出相應的政策建議。 從農(nóng)村集體建設用地法律制度變遷的過程中我們可以發(fā)現(xiàn)：第一,集體建設用地制度的變遷路徑表現(xiàn)為典型的強制性制度變遷。集體建設用地由私人所有到集體所有的歷史變革,滿足了我國工業(yè)化初期加快資本積累、加強資源的配置能力等客觀要求,政治上的考慮是集體建設用地所有權(quán)從農(nóng)民個人向集體變遷的決定因素。第二,隨著市場經(jīng)濟體制的逐步完善、城市化的快速推進,集體建設用地的財產(chǎn)屬性日益彰顯,集體建設用地制度變革的潛在收益日益增加,原有的制度均衡狀態(tài)被打破,集體建設用地使用制度呈現(xiàn)出誘致性變遷的趨勢。第三,制度變遷具有路徑依賴性,集體建設用地使用制度創(chuàng)新過程中需要兼顧歷史和現(xiàn)實因素,比如在歷史過程中形成的農(nóng)民的土地認知和土地情節(jié)。第四,根據(jù)諾斯理論,集體建設用地制度能否發(fā)生制度變革和創(chuàng)新并取得良好績效,取決于制度創(chuàng)新的凈收益大小以及中央政府、地方政府、農(nóng)民集體經(jīng)濟組織和集體建設用地的使用者等不同的利益主體之間的利益協(xié)調(diào)度,即要求盡可能達到所有者績效偏好與使用者績效偏好的趨同。 通過法律的供需分析、成本收益分析,表明：在集體建設用地使用權(quán)流轉(zhuǎn)過程中,地方政府、集體經(jīng)濟組織、農(nóng)民的收益增加,地方政府和農(nóng)民具有內(nèi)在的積極性和創(chuàng)造性；中央政府的收益相對減少,減少部分轉(zhuǎn)移給了農(nóng)民及集體經(jīng)濟組織,但社會總福利是增加的,即集體建設用地使用權(quán)流轉(zhuǎn)制度變革的凈收益是增加的,集體建設用地使用權(quán)入市流轉(zhuǎn)是合理的也是必然的,但是需要構(gòu)建完善的農(nóng)村土地市場,規(guī)范交易行為,積極供給法律制度。 各地在鄉(xiāng)(鎮(zhèn))村企業(yè)建設用地流轉(zhuǎn)過程形成了“蕪湖模式”、“南海模式”；在宅基地流轉(zhuǎn)過程中,天津的“以宅基地換房”模式得到中央的肯定,并迅速在全國各地推廣,江都“集中居住”過程中也采用了此模式。通過農(nóng)民合作參與市場過程,是中國農(nóng)民參與工業(yè)化和城市化過程的一種制度保證。其具體形式多種多樣,不同的做法各有千秋,有效率的組織和制度最具生命力,自然會發(fā)展壯大,同時也需要政府的支持和保護。我國國情復雜,而且由于各地經(jīng)濟發(fā)展水平的差異以及政府行為偏好的差異,各地探索的流轉(zhuǎn)模式自有其針對性、合理性,這也是因地制宜、實事求是的表現(xiàn)。這些模式雖各具特色,但形成了一個共同的命題：即集體建設用地使用制度改革應當以市場化流轉(zhuǎn)為改革的方向。這一改革的關(guān)鍵仍然是土地產(chǎn)權(quán)制度的創(chuàng)新,這一改革的核心是保障農(nóng)民的權(quán)益,使農(nóng)民參與到國家的城市化進程之中,分享土地用途轉(zhuǎn)變帶來的土地級差收益。 允許集體建設用地使用權(quán)流轉(zhuǎn),實現(xiàn)城鄉(xiāng)建設用地市場接軌,是進一步深化土地市場化改革、規(guī)范土地市場秩序的必然選擇,這一選擇有著充分的理論依據(jù)。首先,從經(jīng)濟學角度而言,土地資產(chǎn)價值的凸顯是集體建設用地使用權(quán)流轉(zhuǎn)的根源,集體建設用地使用權(quán)流轉(zhuǎn)是克服土地利用外部性、保護農(nóng)民權(quán)益的必然要求；其次,從法學角度而言,集體建設用地使用權(quán)流轉(zhuǎn)符合物權(quán)平等保護的要求、符合《憲法》、《民法通則》的立法宗旨,是農(nóng)民利益的法制化、制約權(quán)利濫用的必然要求。 如何創(chuàng)新農(nóng)村集體建設用地法律制度是本文研究的關(guān)鍵。論文提出了農(nóng)村集體建設用地法律制度改革的總體目標、指導思想和完善法律制度體系的要求,并指出農(nóng)村集體建設用地法律制度創(chuàng)新需要考慮制度創(chuàng)新與現(xiàn)行法律規(guī)定妥善銜接的問題,即這一改革仍需在經(jīng)濟社會發(fā)展可承受的范圍之內(nèi),力求制度的創(chuàng)新成本最小。最后分別從流轉(zhuǎn)的條件、途徑、程序、收益分配以及配套改革措施等問題做了相應的探討,并提出一些政策建議。
[Abstract]:At the beginning of 1990, in the Pearl River Delta, the Yangtze River Delta and some of the suburbs of large cities, the farmers used policy and legal space to create standard factory buildings, warehouses and shops for rent; or, regardless of the legal restrictions, directly carry out the illegal lease of the land, In order to form the "invisible" market of the collective construction land flow, the quantity and scale of the circulation are expanding. The existence of the spontaneous and private hidden circulation market of the rural collective construction land use right not only seriously interferes with the normal operation of the state-owned land market, but also causes a large amount of loss of collective land income, and the interests of the farmers are not protected; The change of land use in the process of the transfer of land makes a large number of cultivated land non-agricultural, which causes pressure to the continuous supply of grain in China. The system of non-free and non-flowing collective construction land uses the system to distort the property of the land, and can't play the role of the market mechanism to optimize the allocation of resources, which is not conducive to the optimal allocation of the rural land and the value-added value, which is not conducive to the protection of the farmers' land rights and interests. The relevant legal system of the current restricted rural collective non-agricultural construction land in China has been proved to be in the system crisis. The reform of the rural collective construction land use system has become an irreversible trend, which is a difficult and hot issue that can't be avoided. From the angle of legal economics, the paper makes a comprehensive use of the theory of land property right, the theory of institutional economics and the theory of law economics, etc. On the Innovation of the Legal System of the Transfer of the Right to the Use of the Land for Collective Construction in the Rural Areas On the basis of the analysis of the change of the legal system of collective construction land in the rural areas, this paper, on the basis of the analysis of the change of the legal system of the rural collective construction land, has examined the performance and the defects of the legal system of the collective construction land in the rural areas, and the necessity and feasibility of the transfer of the right to use the collective construction land by using the theoretical method and the research paradigm of the law economics. Then, the model, experience and lessons of the reform of the construction land and the use system of the home base in the villages and towns of the country are summarized, with a view to supporting the theoretical analysis above. Finally, under the logical thought of the "Problem _ Reason _ Feedback", the system of the rural collective construction land use right is reformed and innovated, and the corresponding policy construction is given. On the basis of the change of the rural collective construction land legal system, we can find that the change path of the first and the collective construction land system is typical of the mandatory system The change of the degree of collective construction is from all the historical changes of the private to the collective, and the objective requirements of accelerating the accumulation of capital and strengthening the allocation ability of the resources in the early stage of the industrialization of our country. The political consideration is the decision of the ownership of the collective construction land to change from the individual to the collective. Second, with the gradual improvement of the market economic system and the rapid development of the urbanization, the property attributes of the collective construction land are becoming more and more obvious, the potential income of the change of the collective construction land system is increasing, and the original system equilibrium state To be broken, the system of collective construction land use shows the induced change Third, the system change has the path dependence, the collective construction land use system innovation process needs to take into account both historical and realistic factors, such as the land cognition and soil of the peasants formed during the historical process Fourth, according to the North's theory, the collective construction land system can change and innovate the system and achieve good performance, depending on the net income of the system innovation and the central government. The interest coordination between different stakeholders, such as the government of the party, the collective economic organization of the farmers and the users of the collective construction land, is the requirement to achieve the owner's performance preference and the user's performance preference as much as possible Through the analysis of the supply and demand of the law and the analysis of the cost income, it is shown that in the process of the transfer of the right to use the collective construction land, the income of the local government, the collective economic organization and the peasants is increased, and the local government and the peasants have the inherent enthusiasm and creativity; the central government's collection The benefit is relatively reduced, and the reduced part is transferred to the farmers and the collective economic organizations, but the general welfare of the society is increased, that is, the net income of the change of the transfer system of the collective construction land use right is increased, and the use right of the collective construction land to the market is reasonable. It is also inevitable, but it is necessary to construct the perfect rural land market, regulate the transaction behavior, and actively supply To the legal system, the "Wuhu model" and the "South China Sea model" are formed in the construction land circulation process of the township (town) village enterprise. In the process of the transfer of the homestead, the "to change the house with a house base" mode of Tianjin is confirmed by the center, and is rapidly popularized in all parts of the country, and in the course of the "centralized residence" of the river This mode is also used. The participation of the farmers in the market process is the process of the participation of Chinese farmers in the process of industrialization and urbanization One kind of system guarantee. The specific form of the system is diverse, different approaches are all in the fall, the effective organization and the system are the most vital, the natural will develop and grow, and at the same time, it also needs administration The support and protection of the government is complicated, and due to the difference in the economic development level and the difference of the government's behavior preference, the circulation pattern explored by various localities has its pertinence and rationality, which is also local to local conditions. Seeking truth from facts, these models have their own characteristics, but form a common proposition that the reform of the system of the use of collective construction land should be based on the market-oriented flow The key to the reform is the innovation of the land property right system, the core of this reform is to guarantee the rights and interests of the peasants, to make the peasants participate in the process of the urbanization of the country and to share the change of land use It is an inevitable choice to further deepen the reform of the land market and regulate the order of the land market, which is an inevitable choice for further deepening the reform of the land market and regulating the order of the land market. First, from the angle of economics, the highlight of the value of land asset is the source of the transfer of the right to use the collective construction land, the circulation of the right to use the collective construction land is the inevitable requirement to overcome the externality of land use and protect the rights and interests of the peasants; On the other hand, from the angle of law, the transfer of the right to the use of the collective construction land is in accordance with the requirement of the equal protection of the real right, and is in accordance with the legislative purpose of the Constitution and the General Principles of the People's Republic of China, which is the legalized and restricted of the interests of the peasants. The Inevitable Requirements of the Abuse of Rights. How to Innovate the Rural Collective Construction Land Law The paper puts forward the overall goal, the guiding ideology and the requirements of perfecting the system of the legal system, and points out that the innovation of the legal system of the rural collective construction land needs to take into account the system innovation and the current system. The question of the proper connection of the law, that is, the reform still needs to be within the context of the economic and social development, The innovation cost of the system is the least. Finally, the paper discusses the conditions, the way, the procedure, the income distribution and the supporting reform measures, and so on.
【學位授予單位】：南京農(nóng)業(yè)大學
【學位級別】：博士
【學位授予年份】：2008
【分類號】：D922.3;D923.2;F301

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