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    为各类市场主体做好用地服务——部开发利用司负责人解读《产业用地政策实施工作指引(2019年版)》

    • 来源:国土分局
    • 发布日期:2019-05-28
    • 点击数:45 人次

    为各类市场主体做好用地服务——部开发利用司负责人解读《产业用地政策实施工作指引(2019年版)》

      近日,自然资源部发布《产业用地政策实施工作指引(2019年版)》(简称2019年版《指引》)。这个最新版产业用地政策的“工具包”有哪些新的特点?将给地方自然资源主管部门执行用地政策带来哪些便利?自然资源部自然资源开发利用司相关负责人对此进行了解读。

      保障土地要素供给,推动高质量发展

      近年来,国家出台了一系列涉及产业用地政策的文件,在推动新旧动能转换和经济结构升级、保障民生服务设施建设等方面发挥了积极作用。2016年,原国土资源部归集整理了支持产业发展的用地政策,编制形成《产业用地政策实施工作指引》,归纳了支持产业发展用地政策的适用情形、注意事项,为方便地方全面掌握和准确把握产业用地政策要点,规范引导产业用地政策执行起到了积极作用。

      为什么进行新一轮修订?该负责人表示,系统梳理近年来支持产业发展的用地政策,更新《产业用地政策实施工作指引》,是为了更好地指导地方自然资源主管部门规范执行产业用地政策,为包括民营企业在内的各种所有制经济提供良好服务。

      “党的十九大指出,我国经济已经由高速增长阶段转向高质量发展阶段。其中,在加快完善社会主义市场经济体制方面,要求支持民营企业发展,激发各类市场主体活力。2018年11月,习近平总书记先后就支持民营企业发展,扩大对外开放等发表重要讲话,作出重要批示指示。自然资源部深入贯彻习近平总书记重要讲话和指示批示精神,部党组提出要认真梳理用地、用矿等领域市场监管和服务举措,对待民企要尽心尽力、一视同仁,抓好涉及民营企业的相关政策的贯彻落实,尽全力为民企提供支持和便利。”该负责人说。

      为此,部开发利用司会同权益司、登记局、空间规划局、用途管制司、耕保司等司局对2016年版《指引》进行了修订。

      2019年版《指引》有哪些新的特点?该负责人从三个方面进行了阐释。

      ——坚持营造公平竞争环境。指导地方自然资源主管部门在产业用地政策执行中做到对各种所有制经济一视同仁,保障其平等取得土地要素。

      ——坚持推动高质量发展。指导地方自然资源主管部门在产业用地政策执行中落实严控增量、盘活存量、优化结构、提升效率,切实提高城镇建设用地集约化程度的总体要求,积极引导推动产业发展节约集约用地。

      ——坚持更好服务市场主体。对政策执行作必要说明,一方面使得市场主体能够更加充分地理解,有利于营造公开公平透明的市场环境;另一方面指导地方自然资源主管部门把握政策实施要点,积极为各种所有制经济提供良好服务。

      指导地方用足用好产业用地政策

      产业门类多,用地政策涉及土地管理多个方面,需要落地、落细、落实才能真正发挥作用。“为了便于地方和企业用足用好政策,2019年版《指引》重点对土地用途管制、土地供应、地价管理、集体建设用地管理等方面政策的要点作了说明,对具体执行进行引导。同时,附录收录了近年来国家出台的产业发展用地政策的部分文件清单,方便市场主体和地方自然资源主管部门系统了解相关政策的详细内容。”该负责人说。

      2019年版《指引》主要内容包括哪些?该负责人从产业用地政策的范围和基本原则、土地供应的基本规定、实施适用情形、服务与管理等方面进行了解读。

      首先,2019年版《指引》明确了产业用地政策的范围和基本原则。产业用地政策是指国务院、国务院办公厅及自然资源部等部门的规范性文件中规定的适用于特定行业(不包括房地产业)的用地政策。涉及的内容包括国土空间规划、土地用途管制、土地利用年度计划安排、土地供应、土地利用及不动产登记等各个方面的政策规定。地方各级自然资源主管部门应当遵守国家有关法律法规规章和产业用地政策规定,落实国土空间规划的管控要求,在保障产业发展用地中坚持规划确定用途、用途确定供应方式、市场确定供应价格的原则。

      其次,明确了产业用地政策实施中土地供应的基本规定。“为便于市场主体更好地理解国家法律法规规章对产业用地管理的基本规定,本次修订专门在《指引》中增设‘土地供应基本规定’章节,围绕产业用地中市场主体比较关注的国有建设用地供应方面的问题,梳理了土地划拨、出让、改变用途等土地管理的基本概念和主要管理要求,既方便理解政策,同时也增强与产业用地政策实施部分内容的衔接。”该负责人介绍。

      再其次,2019年版《指引》明确了产业用地政策的适用情形和具体政策依据。该《指引》根据土地用途管制、土地利用计划、国有建设用地供应、地价评估与管理、集体建设用地利用等方面的政策规定,分类提炼了政策实施的要点和所依据的法律法规规章、规范性文件等。

      具体来讲,一是细化和明确了对光伏、风力发电、旅游、乡村旅游停车设施、自驾车旅居车营地、冰雪场地设施和深度贫困地区脱贫攻坚中建设的光伏发电项目等占用相关土地可按原地类管理的情形。

      二是对优先安排土地利用计划的情形进行归纳,对医疗、养老、教育、文化、体育等民生领域用地指标适当倾斜,对国家级开发区利用外资、创新创业企业、小微企业优先安排用地计划指标。

      三是对以划拨方式供应国有建设用地使用权,以协议出让方式供应国有建设用地使用权,以长期租赁、先租后让、租让结合、弹性年期方式供应国有建设用地使用权,以作价出资(入股)方式供应国有建设用地使用权等作了细化说明。

      四是明确产业用地供应前应依据土地估价结果和产业政策综合确定底价,产业用地价格评估应遵循出让地价评估技术规范。

      五是明确了使用集体建设用地等方面的内容,包括养老服务设施建设、乡村旅游、自驾车旅居车营地等可依法使用集体建设用地等。

      最后,2019年版《指引》明确了产业用地的服务与管理要求。《指引》提出地方各级自然资源主管部门执行产业用地政策时,应当坚持公平、开放、透明的市场规则,对产业用地中各种所有制经济主体一视同仁、平等对待,防止排除、限制市场竞争等不规范行为。对政策允许将产业类型、生产技术、产业标准、产品品质要求作为土地供应前置条件的,市、县自然资源主管部门应当加强与提出供应前置条件的产业主管部门的协调配合,做好土地供应后的联合监管。

      “下一步,自然资源部将切实做好《指引》的实施工作,在部门户网站上设立‘产业用地政策实施工作指引’专栏,广泛宣传各类产用地政策;组织开展系统的产业用地政策培训,深入学习习近平总书记在民营企业座谈会上的重要讲话精神等,积极做好对包括民营企业、外资企业在内的各类所有制经济的用地服务保障工作。”该负责人说。

     

           
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