自然资源学报

自然资源学报 ›› 2011, Vol. 26 ›› Issue (9): 1453-1466.doi: 10.11849/zrzyxb.2011.09.001

• 资源利用与管理 •    下一篇

我国当前城乡建设用地置换的实践探索及问题剖析

王婧1,2, 方创琳1, 王振波1   

  1. 1. 中国科学院 地理科学与资源研究所,北京 100101;
    2. 中国科学院 研究生院,北京 100049
  • 收稿日期:2011-04-01 修回日期:2011-06-07 出版日期:2011-09-20 发布日期:2011-09-20
  • 通讯作者: 方创琳(1966- ),男,博士,甘肃庆阳人,研究员,博士生导师,近年来主要从事城市发展与城市规划等研究。
  • 作者简介:王婧(1983- ),女,山东淄博人,博士生,研究方向为区域与城市规划。E-mail: w.j.2000@163.com
  • 基金资助:

    国家自然科学基金项目(40971101)。

China’s Contemporary Urban-Rural Construction Land Replacement: Practices and Problems

WANG Jing1,2, FANG Chuang-lin1, WANG Zhen-bo1   

  1. 1. Institute of Geographic Sciences and Natural Resources Research, CAS, Beijing 100101, China;
    2. Graduate University of the Chinese Academy of Sciences, Beijing 100049, China
  • Received:2011-04-01 Revised:2011-06-07 Online:2011-09-20 Published:2011-09-20

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摘要： 当前我国城乡建设用地利用存在着城市建设用地指标紧缺、农村建设用地低效利用和城乡建设用地"双增"大量侵占耕地等问题。城乡建设用地增减挂钩政策推动下的城乡建设用地置换有望成为破解该问题的综合途径。2004年开始,伴随相关政策陆续出台,城乡建设用地置换实践在多个省市试点推进,其中江苏省万顷良田建设工程、天津市宅基地换房、山东省农村社区化、重庆市地票交易市场的实践较为典型。基于上述典型案例和系统要素分析,总结了实践的问题、根源与演进,认为目前系统中的要素与相应的操作环节中存在问题隐患且部分问题表现突出;实践中主要以涉及"非自愿"置换、补偿与保障不足、生产生活方式改变等的农民利益受损问题较为突出;问题的根源集中在三个方面,即国家层面的约束性的法律、法规、政策尚不健全,地方政府操作不合理和缺乏科学研究支撑。今后的实践中,应该建立统一的城乡土地市场并逐步完善政府主导下的城乡土地市场运行机制,建立科学合理的征地补偿机制,深入开展相关科学研究,遵循集约型用地增长模式,同小城镇建设紧密结合,注重保护村落景观风貌。

关键词: 城乡建设用地置换, “挂钩”政策, 城乡土地市场

Abstract: Recently, there exists more and more severe urban-rural construction land use problems in China, including lack of urban construction land, low rural construction land use and both of urban and rural construction land increasing. Urban-rural construction land replacement impelled by "increasing vs. decreasing balance" land-use policy is expected to be the method to deal with those problems. It was put into practice in several cities and provinces after unveiling a succession of fresh policies since 2004, and the practices in Jiangsu, Tianjin, Shandong and Chongqing were typical, respectively focusing on the boundless expanse of fertile farmland construction, homestead exchange, rural community-oriented development and land transaction. Based on analyzing the cases and system of the land replacement practice, this paper summarizes problems occurred, the reason and their development are as follows: problems exist for every factor in the practice, especially hidden problems are more obvious, such as the farmers’ interests are harmed including being against farmers’ wills, compensations are not satisfactory, and production and lifestyles changed. The first reason is because of imperfect law, regulation and policy, and unreasonable operation and lack of research are another two main reasons. In the future, it should set up an integrated urban-rural land market system, improve land market mechanism, establish compensation mechanism, and conduct in-depth scientific research. In addition, the future land use development should pay attention to intensive land-use growth, and in the replacement process, combination of small town construction with village landscape protection should be practised properly.

Key words: urban-rural construction land replacement, "increasing vs. decreasing balance", land-use policy, integrated urban-rural land market

中图分类号: 

  • F293.3