集体经营性建设用地入市中的政府角色——基于出让合同文本的分析

研究目的:明确政府在集体经营性建设用地入市中的职能、职责,理清入市进程中政府与市场的边界。研究方法:采用文本分析法和概括总结法,以14个入市制度改革试点地区的《集体经营性建设用地使用权出让合同》为分析范本,析取合同条款中映射出的政府角色,并从入市全流程视角剖析政府在入市中的角色定位和行为路线。研究结果:(1)入市中的政府角色主要体现在构建制度环境、培育市场、市场准入管理、协调收益分配和维护市场秩序等方面;(2)政府角色不能超越入市制度改革的目标和底线,需加强防范政府角色错位、越位和缺位风险;(3)构建城乡统一的建设用地市场应是当前阶段政府角色的价值追求。研究结论:政府应继续充当"掌舵人"角色,优化规划编制,强化用途管制与批后监管,指导监督合理分配土地增值收益,在此基础上,还权于市场,厘清政府与市场的界限。

The Role of Government in Rural Construction Land Marketization: Based on the Content Analysis of Contracts

The purpose of the study is to clarify the functions and responsibilities of the government in rural construction land marketization(RCLM)and to clarify the boundaries between the government and the market.The methods used in this study include the content analysis,abstraction and induction.Based on 14 contracts of RCLM issued by pilot areas,this paper analyzes the role of the government reflected in the contract terms,and explains the role of the local government in the rural land construction marketization.The results show that:1)the government’s role in RCLM is mainly embodied in the construction of institutional environment,cultivation of market,market access management,coordination of income distribution and maintenance of market order.2)The role of the government should not exceed the target and the baseline of the reform of RCLM.It is necessary to strengthen the prevention of the risk of dislocation,over intervention and vacancy of the government actions.3)Constructing a unified urban-rural construction land market should be the value pursuit of the current government role.In conclusion,the government should continue to act as the“ steer man”,optimize planning,strengthen the use of controls and post-approval supervision,and guide supervision over the rational distribution of land incremental revenue.As a result,the right to the market is reserved and the boundaries between the government and the market is clarified.The government needs to return power to the society and strengthen the“ autonomy hand” of society that is mainly composed of rural households.