农村建设用地发展权转移增值收益共享研究：形成机理、分配策略及治理机制

Unreasonable benefits allocation among stakeholders is the key constraint during the process of development rights transfering of rural construction land. Based on the field research in the typical region of “Linking the Increase in Land Used for Urban Construction with the Decrease in Land Used for Rural Construction” in Jiangsu Province, Henan Province and Sichuan Province, this project will discuss the Formation Mechanism, Allocation Strategy and its Governance Mechanism of value-added benefits. This research is divided into four parts. Firstly, value-added benefits sharing framework will be established by studying the intrinsic logic of “the formation mechanism of value-added benefits will affect the game behavior of stakeholders, then affect the benefits allocation strategy and its governance mechanism”. Secondly, factors input of stakeholders will be identified and “cost-benefit” accounting systems will be established based on Factor Value Theory and the formation process of value-added benefits. Thirdly, Benefits Allocation Model based on Cooperative Game and Shapley Value Method will be built, which can be used to determine the rational allocation proportion among stakeholders by measuring their marginal contribution. Finally, according to the influence factors analysis of benefits imbalance, governance policies groups and the preferences will be discussed. Together with the existing experience, differentiated governace policies for benefits sharing will be confirmed. The research is a good reference for value-added benefits sharing during the process of transfering rural construction land development right. Moreover, it will alleviate the contradiction of land supply and demand, and promote urban-rural joint development.

收益分配失衡是制约农村建设用地发展权有序转移的根源。本项目通过对江苏、河南、四川“城乡建设用地增减挂钩”典型区域的调研，研究农村建设用地发展权转移增值收益的形成机理、分配策略及其治理机制。具体内容包括：（1）探讨“增值收益形成机理影响利益主体博弈行为，进而影响收益分配策略及其治理机制”的内在逻辑，构建增值收益共享的理论分析框架；（2）基于要素价值论和增值收益来源及其形成过程，识别利益主体的要素投入，构建利益主体“成本-收益”指标核算体系；（3）构建基于合作博弈Shapley值的增值收益分配模型，测度利益主体边际贡献以确定其收益分配的合理比例；（4）基于利益主体收益分配失衡的影响因素分析，进行治理政策组合的设计及其偏好分析，结合改革试验区现有经验，构建差别化的增值收益共享治理机制。本项目为农村建设用地发展权转移增值收益共享提供理论与方法借鉴，缓解土地供需矛盾、促进城乡统筹发展。

随着我国城镇化、工业化进程快速推进，城镇建设用地需求日益增大，建设用地规模急剧扩张，建设用地规模日益逼近资源环境承载的极限， 制约新型城镇化进程有效推进。而我国低效利用的农村建设用地存量巨大、挖潜乏力，城镇建设用地供不应求与农村建设用地闲置浪费并存，城镇与农村建设用地供需错位加剧了建设用地供需矛盾，城乡建设用地置换是破解其供需矛盾的重要路径。因此，2005年国土资源部正式出台城乡建设用地增减挂钩政策，随后以试点先行的形式逐步推广实施，实现在建设用地总量不增加、耕地数量不减少的同时保障城镇发展用地需求。但城乡建设用地增减挂钩政策自上而下实施，土地增值收益分配以政府为主导、主体间收益分配失衡，农民（集体）土地权益受损，极易引致一系列社会问题。如何实现土地增值收益共享是增减挂钩中迫切需要研究的科学问题。. 在总结、归纳国内外相关研究成果的基础上，本研究首先剖析土地增值收益共享内涵，梳理城乡建设用地增减挂钩增值收益形成机理，分析增减挂钩利益主体成本-效益变化，识别利益主体所作贡献与承担的风险， 探讨基于贡献-风险的增减挂钩增值收益共享机理。其次，从建新区农地征收出让和拆旧区农村建设用地整理两实践环节分析当前增减挂钩增值收益分配现状，并结合实证评价农户的土地增值收益共享水平，探讨增值收益共享满意度影响因素，总结增减挂钩增值收益共享现状存在的问题。然后，遵循贡献与收益对等、风险与收益对等的原则，建立基于“贡献-风险”的增值收益共享模型，定量测度增减挂钩增值收益在利益主体之间共享的比例。最后，基于增减挂钩增值收益共享现状评价结果的问题导向和贡献-风险视角下共享比例测度结果的目标导向，结合土地增值收益共享的制约因素和典型经验分析，以权利重构保障收益共享过程公平和利益调整提高收益共享结果公平为治理方向， 构建增减挂钩增值收益共享治理机制。