全面深化土地制度改革的战略设计
摘要：在深化土地管理制度改革的研究和组织实施中，对“改什么”“怎么改”的探索固然重要，但作为基础和前提的却是“坚持什么”“巩固什么”。本文认为，深化土地管理制度改革的总体目标就是在坚持和巩固过去30多年已经建立起的土地管理制度基本框架的基础上，不断完善并最终形成中国特色社会主义土地管理制度体系。新形势下深化土地管理制度改革应有四条主线，每条主线之下又有不同的改革重点：①深化土地产权制度改革，重点包括集体经营性建设用地使用“同权”制度建设、宅基地使用权物权化改革、用地使用权的期限制度建设、用地使用权期间届满续期制度建设；②推动土地市场深化发展，重点包括集体经营性建设用地“同价”入市、非典型宅基地使用权的市场化流转、土地用途管制配额的商品化及市场化；③完善新型工业化、城镇化发展的土地资源动员体制，按区域、分梯度推进土地资源动员体制特别是土地征收制度的改革；④加快土地增值收益分配制度改革，重点包括完善土地征收补偿安置制度的收益分配功能、建立集体经营性建设用地入市收益分配调节制度、土地税收制度改革与建设。从改革路径看，全面深化土地管理制度改革必须坚持国家战略导向，处理好大一统与地方化的关系，重视对深化改革的系统设计，切忌将深化改革的期望全部落在对农村三项制度改革试点经验的提炼上。
关键词：土地制度改革；土地市场；土地产权；土地增值收益
The Strategic Design of Deepening the All-around Reform of the Land System
Abstract:In the process of deepening the research and implementation of the land management system reform, the exploration of“what to change”and“how to change”is no doubt important, but it is“what to persist”and“what to consolidate”that serves as the foundation and premise.This article considers that the overall obj ective of deepening the reform of the land management system is to improve constantly and eventually form a socialist land management system with Chinese characteristics based on upholding and consolidating the basic framework of the land management system that has been established over the past thirty years.Under the new situation, there should be four main lines to deepen the reform of the land management system while each line has its different reform priorities:①deepen the reform of the land property rights system, which focuses on the“same right”system of collective business construction land, property right reform of homestead land use right, the term system of the construction land use right, renewal system for the expiration of the construction land use right; ②promote the land market development in depth, which focuses on“same price”market access of collective business construction land, market circulation of atypical residential land use right, the commercialization and marketization of land use control quotas; ③improve the mobilization system of land resources for new industrialization and urbanization, and promote the mobilization system of land resources according to the regional gradient, especially the reform of land expropriation system; ④speed up the reform of land value-added income distribution system, which focuses on improving the income distribution function of land expropriation compensation and resettlement system, establishing the income distribution adjustment system for market access income of collective business construction land, reforming and constructing the land tax system. From the perspective of reform path, to deepen the land management system reform must adhere to the strategic orientation of the state, deal with the relationship between unification and localization, attach importance to the systematic design of deepening reform and guard against putting all expectation of deepening reform entirely on the refining of the experience of the reform of the three rural systems.
Key words:land system reform; land market; land property rights; land value-added benefits