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| Guiding Opinions of the General Office of the State Council on Improving and Building the Secondary Market for Assigning, Leasing, and Mortgaging Rights to Use Construction Land | | 国务院办公厅关于完善建设用地使用权转让、出租、抵押二级市场的指导意见 |
| (No. 34 [2019] of the General Office of the State Council) | | （国办发〔2019〕34号） |
| The people's governments of all provinces, autonomous regions, and municipalities directly under the Central Government; all ministries and commissions of the State Council; and all institutions directly under the State Council: | | 各省、自治区、直辖市人民政府，国务院各部委、各直属机构： |
| The land market is an integral component of China's modern market system and an important part of the resource factor market. Since the reform and opening up, China has basically formed a primary land market based on government supply and a secondary land market based on assignments, leases and mortgages between market participants, by vigorously promoting the paid use system for state construction land, which have played an important role in establishing and improving a socialist market economic system, promoting the optimal allocation and conservation and intensive use of land resources, and accelerating the progress of industrialization and urbanization. With social and economic development, certain problems in the operation and development of the secondary land market have gradually become prominent, and unsound trading rules, trading information asymmetry, ill-regulated trading platforms, unsound government services and regulation, and other problems are relatively outstanding, resulting in impeded circulation of factors and inefficient allocation of stock land resources, making it difficult to meet the needs of high-quality economic development. For the purposes of improving and building the secondary market for assigning, leasing and mortgaging rights to use construction land, the following opinions are hereby offered, in light of practices in reforms and pilot programs in all regions, with the approval of the State Council. | | 土地市场是我国现代市场体系的重要组成部分，是资源要素市场的重要内容。改革开放以来，通过大力推行国有建设用地有偿使用制度，我国基本形成了以政府供应为主的土地一级市场和以市场主体之间转让、出租、抵押为主的土地二级市场，对建立和完善社会主义市场经济体制、促进土地资源的优化配置和节约集约利用、加快工业化和城镇化进程起到了重要作用。随着经济社会发展，土地二级市场运行发展中的一些问题逐步凸显，交易规则不健全、交易信息不对称、交易平台不规范、政府服务和监管不完善等问题比较突出，导致要素流通不畅，存量土地资源配置效率较低，难以满足经济高质量发展的需要。为完善建设用地使用权转让、出租、抵押二级市场，结合各地改革试点实践，经国务院同意，现提出以下意见。 |
| I. General requirements | | 一、总体要求 |
| 1. Guiding ideology. Xi Jinping Thought on Socialism with Chinese Characteristics in a New Era shall be the guidance, the spirit of the 19th CPC National Congress and the Second and Third Plenary Sessions of the 19th CPC Central Committee shall be comprehensively implemented, the holistic advancement of the overall layout for "economic, political, cultural, social, and ecological progress" and the coordinated advancement of the Four-Pronged Comprehensive Strategy shall be closely centered on, the decisions and arrangements of the CPC Central Committee and the State Council shall be conscientiously put into practice the decisive role of the market in resource allocation shall be maximized, the government shall be better brought into play, a problem-oriented approach shall be adhered to, the establishment of a unified urban and rural construction land market shall be the direction, the promotion of the smooth circulation of land factors shall be the focus, the improvement of the efficiency of allocation of stock land resources shall be the object, unified realty registration shall be the foundation, spatial planning shall be connected with related industry planning, particular attention shall be paid to improving the rules of the secondary land market, services and the regulatory framework shall be bettered, and the level of conservation and intensive use of land shall be raised, so as to provide land use guarantees for the improvement of the socialist market economic system and the promotion of high-quality economic development. | | （一）指导思想。以习近平新时代中国特色社会主义思想为指导，全面贯彻党的十九大和十九届二中、三中全会精神，紧紧围绕统筹推进“五位一体”总体布局和协调推进“四个全面”战略布局，认真落实党中央、国务院决策部署，充分发挥市场在资源配置中的决定性作用，更好发挥政府作用，坚持问题导向，以建立城乡统一的建设用地市场为方向，以促进土地要素流通顺畅为重点，以提高存量土地资源配置效率为目的，以不动产统一登记为基础，与国土空间规划及相关产业规划相衔接，着力完善土地二级市场规则，健全服务和监管体系，提高节约集约用地水平，为完善社会主义市场经济体制、推动经济高质量发展提供用地保障。 |
| 2. Basic principles. | | （二）基本原则。 |
| Grasping the right direction: The reform direction of the socialist market economy shall be adhered to, the decisive role of the market in resource allocation shall be highlighted, and the focus shall be on reducing the government's micro-administration and direct intervention. The overall requirements for the reform of "simplifying procedures, decentralizing powers, combining decentralization with appropriate control, and optimizing services" shall be implemented, regulatory responsibilities shall be enhanced, ex-ante approval shall be reduced, and interim and ex-post regulation shall be innovated and improved, so as to stimulate market vitality and enhance extrinsic impetus. | | 把握正确方向。坚持社会主义市场经济改革方向，突出市场在资源配置中的决定性作用，着力减少政府微观管理和直接干预。落实“放管服”改革总体要求，强化监管责任，减少事前审批，创新和完善事中事后监管，激发市场活力，增强内生动力。 |
| Regulating operation of the market: Trading rules shall be improved, and the market order shall be maintained, so as to ensure that market participants trade in an open, fair and equitable market environment, guarantee that the market operates in accordance with the laws and regulations and develops in a sound and orderly manner, promote the flow of factors and equal exchanges, and improve the efficiency of resource allocation. | | 规范市场运行。完善交易规则，维护市场秩序，保证市场主体在公开、公平、公正的市场环境下进行交易，保障市场依法依规运行和健康有序发展，促进要素流动和平等交换，提高资源配置效率。 |
| Maintaining lawful rights and interests: The equal, comprehensive, and lawful protection of property shall be adhered to. The will of right holders shall be fully respected, and the lawful rights and interests of market participants shall be guaranteed, so as to achieve that various market participants use and trade rights to use construction land equally, in accordance with the law, by market rules and market prices, and that property produces effective incentives. The rights and interests of owners of land shall be effectively safeguarded to prevent the loss of state land assets. | | 维护合法权益。坚持平等、全面、依法保护产权。充分尊重权利人意愿，保障市场主体合法权益，实现各类市场主体按照市场规则和市场价格依法平等使用和交易建设用地使用权，实现产权有效激励。切实维护土地所有权人权益，防止国有土地资产流失。 |
| Improving service efficiency: The awareness of services shall be enhanced, trading procedures shall be optimized, transaction costs shall be lowered, matter handling efficiency shall be raised, the public shall be facilitated in dealing with matters, and the government's governance capacity and level in the land market field shall be comprehensively improved. | | 提高服务效能。强化服务意识，优化交易流程，降低交易成本，提高办事效率，方便群众办事，全面提升土地市场领域政府治理能力和水平。 |
| 3. Objectives and tasks. A secondary land market in which property is clear, the market determines prices, information is gathered, transactions are secure, and regulation is effective shall be established, the market rules shall be sound and complete, trading platforms shall be fully formed, services and regulation shall be in place and effective, the market order shall be better regulated, institutional transaction costs shall be significantly reduced, the efficiency of allocation of land resources shall be significantly improved, and a modern land market system in which primary and secondary markets develop in a coordinated, well-regulated and orderly manner, and resources are utilized intensively and efficiently shall be shaped. | | （三）目标任务。建立产权明晰、市场定价、信息集聚、交易安全、监管有效的土地二级市场，市场规则健全完善，交易平台全面形成，服务和监管落实到位，市场秩序更加规范，制度性交易成本明显降低，土地资源配置效率显著提高，形成一、二级市场协调发展、规范有序、资源利用集约高效的现代土地市场体系。 |
| 4. Scope of application. The object of trading in the secondary market for assigning, leasing and mortgaging rights to use construction land is rights to use state construction land, and the focus shall be on land trading and trading in land together with buildings and other fixtures thereon. Real estate trading shall comply with the laws and regulations such as the Urban Real Estate Administration Law of the People's Republic of China and the Regulation on the Administration of Development and Operation of Urban Real Estate. | | （四）适用范围。建设用地使用权转让、出租、抵押二级市场的交易对象是国有建设用地使用权，重点针对土地交易以及土地连同地上建筑物、其他附着物等整宗地一并交易的情况。涉及到房地产交易的，应当遵守《中华人民共和国城市房地产管理法》、《城市房地产开发经营管理条例》等法律法规规定。 |
| II. Improving assignment rules and promoting the circulation of factors | | 二、完善转让规则，促进要素流通 |
5. Specifying the forms of assignment of rights to use construction land. All kinds of conduct resulting in the transfer of rights to use construction land shall be treated as assignment of rights to use construction land, including the transfer of rights to use construction land in forms such as trading, exchange, donation, capital contribution, judicial disposition, asset disposition, and merger or split of legal persons or other organizations. If the right to use construction land is transferred, ownership of any building or other fixture on the land shall be passed together. In the case of conveying of real estate, procedures for conveying of real estate shall be instituted in accordance with the laws and regulations relating to conveying of real estate.
．．．．．． | | （五）明确建设用地使用权转让形式。将各类导致建设用地使用权转移的行为都视为建设用地使用权转让，包括买卖、交换、赠与、出资以及司法处置、资产处置、法人或其他组织合并或分立等形式涉及的建设用地使用权转移。建设用地使用权转移的，地上建筑物、其他附着物所有权应一并转移。涉及到房地产转让的，按照房地产转让相关法律法规规定，办理房地产转让相关手续。
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