集体建设用地制度改革对城中村改造土地开发、收益分配与绩效的影响：新制度经济学视角

To promote new urbanization strategy, China proposes to solve the “three 100 million people” issues and to finish the renewal of existing shantytown areas, urban villages and dilapidated houses in urban and town area by 2020. However, there are various challenges and the renewal process is slow. The authorities aim to accelerate the renewal process by deepening property right reform in land and promoting fair sharing of land value increment. How to develop a mechanism to guarantee the fair share of land value increment and to promote urban village renewal by land reform, and how to evaluate the impact of land-reform on the achievements of urban renewal, however, need further exploration. This study, mainly based on new institutional economics, following the research path of “identifying problems - conceptualizing and theorizing the research questions - testing hypotheses - proposing policy”, aims to analyze the impact of rural construction land reform on land assembly and development, land value increment distribution and achievements of urban village renewal. We establish a framework connecting “rural construction land reform - land assembly and development in urban village renewal - distribution of land value increment - achievements of renewal”. We will analyze the impact of land reform on the initiative of urban renewal and the selection of land assembly models, explore how land assembly modes affect the sharing and distribution of land value increment, evaluate the achievements of urban village renewal under different property rights and land assembly strategies，and propose future reform policy. The results of this study are of significant importance on promoting the renewal of urban village, the urbanization of rural residents and the people-centered new strategy of urbanization.

为推进新型城镇化建设，我国提出解决“三个1亿人”问题，到2020年基本完成现有城镇棚户区、城中村和危房改造。但各地改造工作普遍面临一些困难。推进土地制度改革、合理分配土地增值收益被认为是破解这一困境的关键。但如何通过土地制度改革构建土地增值收益的共享机制以推进城中村改造却有待深入研究。本研究以新制度经济学为主要依据，按照“问题识别--理论概括与分析—实证检验—对策建议”的研究路径，建立联系“集体建设用地制度—城中村改造土地开发整理—土地增值收益分配--改造绩效”的系统分析框架，揭示集体建设用地制度改革对城中村改造土地开发整理、收益分配与绩效的影响机制:分析农村集体建设用地制度改革对城中村改造土地开发整理模式选择的影响；土地开发整理模式对土地增值收益分配的影响；评估其对城中村改造社会经济效应的影响；提出土地改革和城中村改造建议。项目成果有利于深化土地制度改革，推进城中村改造和新型城镇化建设。

为推进新型城镇化建设和城乡融合发展，我国提出解决“三个1亿人”问题，到2020年基本完成现有城镇棚户区、城中村和危房改造。2015年我国启动农村土地制度改革试点，开展农村土地征收制度改革、宅基地制度改革和集体经营性建设用地入市制度改革。本课题假设这一改革会将对城中村改造的组织实施模式、土地增值收益分配和农村社会经济发展产生深远影响。因此，课题从农村土地制度改革对城中村改造组织实施模式的影响，不同组织实施模式下土地增值收益分配关系，农村社会经济发展与城乡融合等改革社会经济效益等角度，考察本轮农村土地制度改革对城中村改造的影响。通过对33个试点区县的文献研究和对8个改革试点区县的调研和邀请一线试点工作人员到西安交通大学召开试点地区改革实践经验座谈会等途径，研究发现，农村土地制度改革在不同地区推进及其影响差异较大；土地制度和土地增值收益分配政策对城中村改造组织模式与改造实施进展具有重要影响；不同政策对农地非农化产生的土地增值收益及其分配影响较大；地方试点过多强调了集体经营性建设用地入市与农地征收土地增值收益的平衡，不利于改革的深入推进；由于城中村改造涉及问题复杂，组织实施难度大等问题，各试点区县应用试点政策推动开展城中村改造的案例较少；目前，农村土地制度改革试点和《土地管理法》修订已取得较大进展，但未来仍需要深化土地制度改革。