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The author:(作者)qqpublished in(发表于) 2013/11/15 12:47:12 Anhui’s rural land reform programme will be introduced： circulation of collective construction land
Hemiaoxuyang
Anhui "land reform" in 20 districts/pilot project areas to establish a unified urban and rural land markets
18 date of the closing of the third plenary session, Anhui's rural land reform programme was introduced.
Hotly debated outside Anhui "land reform" has been a breakthrough--rural collective construction land sale.
November 12 locally by way of promulgation of the Anhui provincial people's Government on deepening the experimental work of comprehensive rural reform model guidance (hereinafter referred to as the guidelines), on the unity of pluralistic rural land market-related, be interpreted as break the boundaries of existing land policies and laws, result in Anhui has become 18 places to explore on land system after the third plenary session "should drop".
"Sale" concept is local land authorities denied that the persons concerned of land Bureau in Anhui Province responding to, files called "can transfer using the homestead", not a "sale". "Our policy was not more breakthroughs, is in line with the Central spirit. "Anhui province a decision-making consultant told the 21st century business Herald said.
"Trading will be impossible, Anhui's policies a little edge on flavor, but it does not have such transboundary movements. "One local expert commented. However, land reform in Anhui there is still part of the breakthrough. Of the above-mentioned guidance offered to establish a unified urban and rural land markets, which is believed to have around buying cheap rural land for construction, resale prices to developers "Government agency".
Unity of pluralistic rural land market
Topics of the plenary session Communique relating to agrarian reform: for equal participation of peasants modernization process, to share results of modernization, to speed up the construction of new agricultural management system, giving people more property rights, advancing the following key elements: equal exchange and balanced allocation of public resources, improve the healthy development of urbanization in institutions.
Communique: "to establish a fair, open and transparent market rules, improve mainly decided by the market pricing mechanism, establishment of the integrated urban and rural construction land market."
Under the guidance of the spirit of reform in Anhui have been implemented, local from the policy level to do a more detailed plan: choose from 20 counties (district), ranging from agriculture, rural collective enterprises, rural land market construction "three capital" infrastructure construction and management, information management, public undertaking reform and financial services 6.
Anhui's breakthrough is that the guidance for exploring new mechanism of rural land circulation statement. This is read as the biggest highlight of the agricultural land reform in Anhui Province, highlighting the urgent desire of the local third plenary implementation of reforms.
Comments pointed out that unity of pluralistic rural land markets. Allows the transfer of collective construction land through transfer, rental, leasing, investment, law, inter alia, transferring, for industrial, commercial, residential construction, and tourism and farmers.
In addition, the Homestead established exit compensation incentives. Upholding the principle of voluntary, paid, explore Homestead out of compensation motivation mechanism consistent with farmers ' legitimate demands. Established farmers by the circulation mode using other Homestead rural collective economic organizations of the system.
Meanwhile, Anhui in 2015 will be achieved before the end of rural collective construction land, agricultural land, unused land and rural areas within the scope of State-owned land property registration certificate full coverage will determine the collective land ownership to farmers ' group each own.
"In the eastern coastal area, Kunshan and Tianjin economic collectives have along those lines, this is nothing new, collective-owned construction land for building, plant rental, not in violation of State regulations. "Anhui Academy of social sciences, said Xie Peixiu, Director of villages and towns, but" the deal will be impossible ".
63rd of the land management Act provides: "collective land use rights may not be sold, transferred or leased for non-agricultural construction, but consistent with the land use plan and shall obtain land for construction companies due to bankruptcies, mergers and other circumstance except for the transfer of land use right according to law. ”
Existing policies shows that collective construction land use right transfer has not been legally established. Although the agricultural land market in more discussions before this plenary, however, both the Central and the places are more cautious.
Bypassing the middleman
"This file should say at the forefront in Anhui Province. "Anhui agricultural University, Director of the land management Department of yuzhongxiang said.
"This transfer is to set up a mechanism, by adding or removing indicators on rural land, transfer of the Government to hold. For example of rural people to the city, its possession of the Homestead will be released, but it is not the same as nationalized land can be traded freely, but in accordance with common market common supplies, not wanting to give it to anyone, there is a constraint. "He said.
The guidance States that, linked to the implementation of land management, urban and rural construction land increase and decrease release of building land targets, according to relevant provisions of the paid transfers; exploring indicators of rural collective construction land reserve system and enliven the rural collective land for construction.
Yuzhongxiang believe that exploration in Anhui rural housing land in the Interior is run by the rural collective organizations, can also be released through land improvement construction the indicators themselves, are actually indicators of turnover and transactions.
But unlike other pilot indicators flow is, indicators of collective-owned construction land reserve system in Anhui Province is to make rural Homestead after the interest income also belongs to all. "Urbanization in the past is the ' city ', depriving the rural resources is now freeing up resources to the countryside. "Yuzhongxiang said.
The guidance also points out that, relying on State-owned land for construction market, a unified urban and rural land markets. Rural collective construction land, residential land, woodland, forest and forest land ownership, land contracting, construction indicators, indicators of dynamic balance of total amount of cultivated land transfer, lease, shares, mortgages and so on, gradually into the land unified urban and rural markets, this would also be considered as bypassing the cheapest to buy rural land for construction, sold at high prices to developers of intermediate steps.
"If direct access to markets, the Government will not expropriate farmers land, channel, you don't have symptoms, who owns who benefits", Renmin University of China Department of land administration says Ye Jianping, Director.
Yuzhongxiang believes that this reform not only to farmers ' right to achieve, while rural collective ownership rights to achieve, part of the bonus after the release collective. After the collective economic growth, safeguard also solves the problem. Shandong and other places through Homestead finishing, use indicators themselves to establish an industrial park, realizing farmers ' urbanization in place.
Data showed that China's urbanization rate reached 70%, there will be 400 million people in rural areas. Anhui, local experts said, he has worked in research in Yangtze River Delta, local governments in provinces such as Jiangsu and Zhejiang provinces agreed that Anhui after most farmers here to work or going back to the local, urbanization is unlikely. Based on the current situation, strengthen the collective economy, protection of farmers ' urbanization may be a viable path.
Not a "sale"
Worth noting is that Anhui policy departments stressed that this proposed "transfer" the Homestead, "sale" is there any difference between them.
Experts believe that the equality of urban land to construction land in countryside and definitely want to enter the market, but this requires a process that was not immediately realized.
"The plenary session proposed establishment of the integrated urban and rural construction land market, but now (land purchases) also did not have the legal condition certainly does not allow direct trading. "Ye Jianping said.
This year during the NPC, according to this year's legislative agenda, has not been incorporated into the draft amendment to the land management act the formal continuation of consideration, but the timing for consideration. Originally Xu shaoshi, Minister of land and stated at the foreign, the amendment to the land management act was further revised, consider, on the basis of the future revision of legislation promoting the rural circulation of collectively-owned land into the city, that is, narrow the scope of land requisition.
"Agricultural to market controversy is big", Anhui Academy of social sciences Township by Director Xie Peixiu said, "rural collective land ownership is a not completely of ownership, rural collective land through government expropriation to entered a level land market, its produces of differential land rent Government took to has, for based facilities construction,, if regardless of current reality, suddenly put rural collective land and State land right are peer has, entered a level land market transfer, this differential land rent local Government on took not to has, this will formed sharp opposing. ”
The Chinese Academy of social sciences academician Zhang Xiaoshan believed that deeper reason behind it is the central power, authority does not match the contradiction unresolved. Places if there is power and a stable source of tax revenue, how much can reduce dependence on financial, at least on the modification of the land management law and the phasing out of land expropriation system resistance is much smaller.
At this point, has been in the forefront of China's rural reform in Anhui, there is still no breakthrough for the time being.
何苗 许阳
安徽版“土改” 20个县/区试点建立统一的城乡土地交易市场
十八届三中全会闭幕当日，安徽版农村土地的改革方案随即出台。
外界一度热议安徽“土改”已经有了突破性进展——农村集体建设用地可买卖。
11月12日当地公布的《安徽省人民政府关于深化农村综合改革示范试点工作的指导意见》(下称《指导意见》)，其关于建立多元统一的农村土地市场的有关表述，被解读为突破了现有土地政策和法律的边界，一时间安徽成为十八届三中全会后土地制度上地方探索的“急行军”。
但“买卖”的概念随即被当地土地主管部门否认，安徽省国土厅有关人士回应，文件中称之为“可以流转使用宅基地”，并非是“买卖”。“我们的政策没有更多的突破，跟中央精神还是一致的。”安徽省政府一位决策咨询专家对21世纪经济报道记者表示。
“买卖肯定还是不可能的，安徽的政策有一点打擦边球的味道，但不会有这么大的越界的动作。”当地一位专家评述。不过，安徽土改仍然有了部分突破。上述《指导意见》提出将建立统一的城乡土地交易市场，此举被认为绕开了廉价买入农村建设用地、转手高价卖给开发商的“政府中介”。
建立多元统一的农村土地市场
三中全会公报涉及土地改革的议题提出：让广大农民平等参与现代化进程、共同分享现代化成果，要加快构建新型农业经营体系，赋予农民更多财产权利，推进城乡要素平等交换和公共资源均衡配置，完善城镇化健康发展体制。
公报还提出：“要建立公平开放透明的市场规则，完善主要由市场决定价格的机制，建立城乡统一的建设用地市场”。
这些改革精神在安徽版的《指导意见》中都得到了贯彻，当地还从政策层面做了更细致的安排：选择20个县(区)，从农业经营主体、农村土地市场建设、农村集体“三资”管理、公共基础设施建管、信息和金融服务等6个方面开展改革试点。
安徽的突破在于，《指导意见》中对于探索农村土地流转新机制的表述。这也被外界解读为安徽此次农地改革的最大亮点，凸显地方落实三中全会相关改革的迫切愿望。
意见指出，将建立多元统一的农村土地市场。允许集体建设用地通过出让、租赁、作价出资、转让、出租等方式依法进行流转，用于工业、商业、旅游和农民住宅小区建设等。
另外，建立宅基地退出补偿激励机制。坚持自愿、有偿原则，探索建立符合农民合理需求的宅基地退出补偿激励机制。建立农民通过流转方式使用其他农村集体经济组织宅基地的制度。
同时，安徽将在2015年底前实现农村集体所有的建设用地、农用地、未利用地和农村范围内的国有土地确权登记发证全覆盖，将集体土地所有权确定到每个具有所有权的农民集体。
“在东部沿海地区，像昆山、天津等地的集体经济组织早就采取这些办法，这不是什么新鲜事，将集体建设用地建设标准化厂房出租等方式，不违反国家规定。”安徽社科院乡镇所所长谢培秀表示，但“买卖肯定还是不可能的”。
《土地管理法》第63条规定：“集体土地使用权不得出让、转让或出租用于非农业建设；但是，符合土地利用总体规划并依法取得建设用地的企业，因破产、兼并等情形致使土地使用权依法发生转移的除外。”
现有政策表明，集体建设用地使用权流转并没有得到合法的确立。虽然农地入市在本届三中全会前讨论较多，但无论是中央还是地方都对此较为谨慎。
绕开中间环节
“安徽省这个文件应该说走在前列。”安徽农业大学土地管理系主任於忠祥说。
“这个流转其实就是建立一个机制，把农村土地通过增减化指标，由政府统一进行出让。比如农村人到城市去了，其占有的宅基地就可以释放出来，但并不是像城市国有土地一样可以自由买卖，而是按照统一的市场统一供应，并不是说想给谁就给谁，有这样一个约束。”他说。
《指导意见》指出，实施土地整治、城乡建设用地增减挂钩腾出的建设用地指标，可按有关规定有偿调剂使用；探索建立农村集体建设用地指标储备制度，盘活农村集体建设用地。
於忠祥认为，安徽探索的是农村宅基地在内部由农村集体组织经营，也可以把通过土地整治释放出来的指标自己进行建设，实际上还是指标的流转和交易。
但跟其他地区试点的指标流转不同的是，安徽的集体建设用地指标储备制度是让农村宅基地释放之后利益收入还要归农村所有。“以往城镇化是‘以乡养城’，剥夺农村资源，现在是释放资源到农村去。” 於忠祥说。
《指导意见》还指出，依托国有建设用地交易市场，建立统一的城乡土地交易市场。农村集体建设用地、宅基地、林地使用权、森林和林木所有权、土地承包经营权、建设用地指标、耕地占补平衡指标的转让、出租、入股、抵押等，逐步纳入城乡统一的土地交易市场，此举也被视作绕开了廉价买入农村建设用地、转手高价卖给开发商的中间环节。
“如果直接进入市场的话，政府就不会征用农民的地，有渠道的话就不用征了，归谁的谁受益”，中国人民大学土地管理系主任叶剑平说。
於忠祥认为，这一次改革不仅要把农民的使用权要实现，同时农村集体所有权的权利也要实现，这个红利释放之后一部分归集体。集体经济壮大之后，保障问题也解决了。此前山东等地就通过宅基地整理，用指标自己建立一个产业园区，实现了农民就地城镇化。
有数据表明，中国即使城镇化率达到70%，也会有4亿人在农村。安徽当地专家表示，他曾在长三角地区调研，江浙等省份的地方政府都认为，来此务工的安徽农民大多以后还是要回到本地，异地城镇化的可能性不大。基于这样的现状，壮大集体经济，保障农民就地城镇化的不失为一条可行的路径。
不可“买卖”
值得注意的是，安徽政策部门强调的是，此次提出“流转使用”宅基地，和“买卖”有本质区别。
专家认为，农村建设用地跟城市土地要均等，肯定是要入市，但这需要一个过程，并非马上就能实现。
“三中全会提出建立城乡统一的建设用地市场，但是现在(宅基地自由买卖)法律的条件还没有具备，肯定不允许直接买卖。”叶剑平说。
今年全国两会期间，根据今年的立法计划，土地管理法修正案草案并没有纳入正式的继续审议范围，而是适时安排审议。原国土部部长徐绍史曾对外表示，《土地管理法修正案》正在进一步修订，未来要在修订立法的基础上考虑推进农村集体土地入市流转，即缩小征地范围。
“农地入市争议很大”，安徽社科院乡镇所所长谢培秀说，“农村集体土地所有制是一种不完全的所有制，农村集体土地通过政府征用才能进入一级土地市场，其产生的级差地租政府拿去了，用于基础设施建设等，如果不顾当前实际情况，一下子把农村集体土地和国有土地权利都对等了，进入一级土地市场转让，这个级差地租地方政府就拿不到了，这会形成尖锐对立。”
中国社科院学部委员张晓山也认为，其背后深层次的原因是央地财权、事权不匹配的矛盾没有解决。地方如果有了财权和稳定的税收来源，多少能够减少对土地财政的依赖，至少在修改土地管理法和逐步取消征地制度上阻力会小很多。
在这一点上，一直走在中国农村改革前列的安徽，暂时也仍未突破。
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