特色小镇项目土地取得方式探究
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2016年7月1日，住建部、国家发改委和财政部联合下发《关于开展特色小镇培育工作的通知》，决定在全国范围开展特色小镇的培育工作。现阶段，特色小镇已经发展出历史文化型、特色产业型、生态旅游型等不同的类型，但无论何种类型，项目用地都是特色小镇开发的物质载体，项目用地的取得方式问题是特色小镇项目共同面临的问题。
On 1 July 2016, the Ministry of Housing and Urban and Rural Development, the National Development and Reform Commission and the Ministry of Finance jointly issued the Notice on Launching the Work for Fostering Characteristic Towns, deciding to launch the work for fostering characteristic towns on a nationwide scale. At the present stage, such different types of characteristic towns as historical/cultural towns, characteristic industry towns, ecotourism towns, etc. have developed. However, regardless of the type of town, project land is the physical medium on which characteristic towns are developed, and the methods of securing project land is an issue that all characteristic towns face.
本所曾全程服务于云南某特色小镇项目，该项目既属于特色产业型小镇，是著名特色中草药的原产地，又属于生态旅游型小镇，位于风景秀美的山区。项目规划范围内有特色膳食街、音乐小镇、养老社区、滑雪场、医院、学校、剧院、温泉酒店、商业地产等业态。由于项目业态不同，投资人获取项目用地的方式和途径也不同。
We once provided our services throughout the process for a characteristic town project in Yunnan. This project is both a characteristic industry town, being the place of origin of a famous characteristic Chinese traditional medicine, and an ecotourism town, as it is located in a scenic mountainous area. Within the planned scope of the project, there is a characteristic food street, music town, retirement neighborhood, ski resort, hospital, schools, theater, hot spring hotel, commercial real estate, etc. As such projects take various forms, the methods and means by which investors obtain project land also vary.
划拨方式
Allocation method.
划拨方式的首要条件是土地用途要符合《划拨用地》目录。因此，并非小镇范围内所有项目用地都需由投资人有偿获得，对于小镇范围内的市政道路、公共广场、绿地、供水设施、公益学校、公益医院等可以采用划拨方式提供，一定程度上减轻投资人的压力。但需注意的是，划拨土地用途限制较为严格，且国家有缩减划拨用地范围的趋势，营利性的学校、医院、剧院等都难以通过划拨方式供地。
The primary condition for allocation is that the purpose of the land comply with the Allocated Land list. Accordingly, not all projects within a town require the investors to acquire the land for consideration, for example the land for public roads, public squares, green spaces, water supply facilities, non-profit schools, charitable hospitals, etc. within a town may be provided by allocation, thereby reducing the pressure on the investors to a certain extent. However, it should be noted that the restrictions on the purpose of allocated land are quite strict, with the state showing a trend toward narrowing the scope of allocated land, and it is almost impossible to secure land by allocation for for-profit schools, hospitals, theaters, etc.
出让方式
Grant method.
土地出让方式是特色小镇取得土地使用权的主要方式之一，小镇范围内的商业住宅、酒店等项目用地都需要通过此种方式获取，但根据我国法律规定，国有建设用地使用权原则上必须通过招标、拍卖、挂牌（招拍挂）方式公开出让，而且出让人不能与意向受让方约定土地出让价格及挂牌底价，投资人并无法协议控制拿地价格。实践中，多有通过定向设置供地方案、竞买条件等方式间接锁定投资者，进行所谓“定向招拍挂”的，亦有通过将土地出让金的地方政府留存部分直接返还给投资人，间接锁定土地出让价格的，但这些也都被相关法规政策所禁止。
Granting of land is one of the major methods by which land use rights are secured in characteristic towns, with the land for such projects as commercially developed housing, hotels, etc. within the town required to be secured in this way. However, pursuant to the laws of China, the use rights to state-owned construction land must, in principle, be openly granted by tender, auction or listing on a land exchange (Tender/Auction/Listing), and the grantor may not agree upon the land grant price or the listing reserve price with the prospective grantee, making it impossible for the investor to control the price for the land by way of an agreement. In practice, investors are often indirectly locked in by such methods as the targeted setting of a land supply plan, bidding conditions, etc., to carry out a so-called “targeted Tender/Auction/Listing”, and there also instances where the land grant price is indirectly locked in through the local government retaining a portion of the land grant premium and directly refunding it to the investor. These practices, however, are also all prohibited by relevant regulations and policies.
租赁方式
Lease method.
根据《规范国有土地租赁若干意见》的规定，国有土地租赁是国有土地有偿使用的一种形式，国有土地租赁可以采用招标、拍卖或者双方协议的方式，但有条件的，必须采取招标、拍卖方式。而且部分地区要求，商业、旅游、娱乐等经营性用地的租赁或者有二个以上租赁土地意向人的租赁，必须采用招拍挂的方式。同时，国有土地租赁还受租赁期限的限制，一般不超过5年，最长不超过《合同法》规定的20年。对于小镇范围内的滑雪场、游乐场等都可以考虑通过租赁方式获得土地使用权。
Pursuant to the Several Opinions on Regulating the Lease of State-Owned Land, the leasing of state-owned land is one of the means of using state-owned land for consideration. The leasing of state-owned land may be effected by way of tender, auction or agreement between the parties, but where there are conditions, it must be effected by tender or auction. Furthermore, certain regions require that, for commercial, tourism, entertainment or other such land with a for-profit purpose or where there are least two prospective lessees, the Tender/Auction/Listing method be used. Additionally, leases of state-owned land are subject to lease terms, generally not exceeding five years, and, at a maximum, not exceeding the 20 years specified in the Contract Law. For ski resorts, amusement venues, etc. within a town, consideration may be given to securing land use rights by way of a lease.
集体土地入市的方式
Allocation method.
特色小镇常常涉及到村镇集体建设用地，根据《土地管理法》的规定，农民集体所有的土地的使用权不得出让、转让或者出租用于非农业建设，但是目前政策已有逐步放开的趋势。2014年12月，中央全面深化改革领导小组审议通过了《关于农村土地征收、集体经营性建设用地入市、宅基地制度改革试点工作的意见》，在全国选取的33个区（县）试点区域内，暂时调整实施集体建设用地使用权不得出让等规定，在符合规划、用途管制和依法取得的前提下，允许存量农村集体经营性建设用地使用权出让、租赁、入股，实行与国有建设用地使用权同等入市、同权同价。随着集体土地入市，使用集体土地也将是投资者可以考虑的土地取得方式之一。
Characteristic towns often involve rural collective construction land. Pursuant to the Law on the Administration of Land, the use rights to land collectively owned by farmers may not be transferred, assigned or leased for non-agricultural construction. However, there is gradual trend toward relaxing the policy. In December 2014, the central government deliberated on and adopted a pilot project opinion, deciding to provisionally revise the provision prohibiting the transfer of the use rights to collective construction land in 33 selected district (county) pilot regions around the country, permit the transfer of, lease of and taking of an equity stake in the use rights to existing rural collective for-profit construction land, subject to compliance with zoning, use restrictions and lawful securing thereof, and implement equivalent availability and identical rights/identical price as for use rights to state-owned construction land. With collective land becoming available, use of collective land will also become a means of securing land that investors can consider.
“PPP+土地”合并实施的方式
Implementation of “PPP+Land”.
以PPP模式实施的特色小镇项目，根据国土资源部《产业用地政策实施工作指引》的规定，可将通过竞争方式确定项目投资主体和用地者的环节合并实施。也即，在特色小镇PPP项目公开遴选社会投资人时，相关产业用地也一并进行挂牌出让，社会投资人中标PPP项目的同时也获得相关产业用地的使用权。
For characteristic town projects implemented using the PPP model, the steps for determining the project investing entity and land user may be consolidated through a competitive method as specified in the Working Guidelines of the Ministry of Land and Resources for the Implementation of the Industrial Land Policy. That is to say, when a private investor is being publicly selected for a PPP project in a characteristic town, the relevant industrial land is listed and granted simultaneously, such that, by winning the bid for the PPP project, the private investor simultaneously secures the use rights to the relevant industrial land.
特色小镇项目中，项目用地的获取方式需要根据项目的具体业态、土地性质等确定，往往最能产生效益的地块，也是最抢手的、价格最高的，投资人需要“事前算赢”，在投资前综合考虑小镇范围内各种业态的用地成本和效益以及拿地风险。对于部分营利性较弱的特色小镇项目，投资者也可以与政府协商合作开发小镇范围外的其他经营性资源作为补偿。总之，投资者需要谨慎研判相关风险，自行平衡整体收益。
In characteristic town projects, the method of securing project land needs to be determined based on the specific forms of the projects, the nature of the land, etc. Generally speaking, the lots that can generate the greatest benefits are those that are the most sought after and have the highest price. Before making an investment, the investor needs to comprehensively consider the land costs and benefits for the various business forms within the town and the risks in obtaining the land. For those characteristic town projects that have relatively weak profitability prospects, the investor can negotiate with the government to develop other profitable resources outside the town as compensation. In short, investors need to prudently consider and assess relevant risks and themselves balance the overall benefits.
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作者简介：
合伙人 北京办公室
业务领域：建设工程与基础设施, 房地产, 环境、能源与资源
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输12
汤宏伟 律师
北京办公室 房地产和基础设施部
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