随着我国工业化、城镇化的发展，农地非农化进程不断加快，粮食安全、环境安全和生态安全受到严重威胁。由于农民赖以生存的土地被征收，征地矛盾日益突出，农民权益受到侵害，以至于失地农民生计困难，社会安全的不确定性大大增加。在工业化、城镇化推动建设用地扩张占用耕地的同时，数量巨大的农村集体建设用地的流动受到国家严格限制，很少用于二次开发利用，未能发挥存量资源的重要作用。改革开放以后，我国市场经济体制建立并完善，城乡土地资产价值日益显化，农民集体所有建设用地的流转逐渐盛行。但当前，农村集体建设用地流转在法律上并不得到认可，城乡土地市场仍然处于分割状态，集体建设用地利用效率较低，这不能满足新时期社会发展的需要。因此，在我国统筹城乡发展、科学发展、土地节约集约利用以及保护农民土地权益等目标的指引下，加强对农村集体建设用地流转的规范、有效管理显得尤为必要。本研究通过总结农村集体建设用地流转历史演变过程，分析集体建设用地流转中事物内在的本质的必然的联系，探讨流转调控的基本原理和策略，提出了农村集体建设用地流转的制度框架和立法建议，以便推动流转交易的规范有序进行，为在农村工业化、城镇化发展战略下实现土地资源优化配置提供经验和理论借鉴。 本研究按照“提出问题”“分析问题”“解决问题”的基本逻辑框架进行具体分析。在本文看来，目前农村集体建设用地流转已经为理论和实践界所重视，针对各试点单位实践经验的总结，以及集体建设用地流转制度创新与改革的研究比较全面，特别是制度变迁和制度创新受到广泛关注。而农村集体建设用地流转既是土地物质载体的流转，也是土地利用权利的流转，是土地资源优化配置的必然要求，涉及土地供需均衡、权利均衡以及市场与政府干预等众多内容。土地供需均衡理论、地租地价理论、土地产权理论、国家适度宏观调控理论、系统论与控制论以及法和经济学理论在资源配置、权利结构安排、政府与市场的协调、复杂事物的发展与管理以及效率与公平的关系等领域有着深刻的阐述，对于农村集体建设用地流转的实质性内容和方法论有着重要的启示。 研究表明，我国农村土地集体所有制建立以后，集体建设用地流转经历了长期的演变过程。改革开放以前，由于实行计划经济体制，我国禁止农村集体建设用地自由流转；但随着改革开放政策的实施以及社会经济的发展，集体建设用地的自发、无序流转逐渐盛行；到20世纪90年代中期以后，农村集体建设用地流转的探索、规范管理逐步加强，促进了流转有序进行。当前，我国农村集体建设用地流转范围不断扩大，交易组织化程度不断提高，规范管理措施日益加强，收益分配逐渐向农民集体和农民倾斜，取得了显著成效。同时，农村集体建设用地流转也面临法律制度不健全，城乡土地市场不统一，公众认识不一致，配套措施缺失，具体操作困难，农民土地权益缺乏保障等挑战。因此，进一步推动农村集体建设用地流转制度改革，已极为迫切。 在农村集体建设用地流转演变分析基础上，本研究分别运用政治经济学理论、经济计量模型以及模块化方法，从形成机理、驱动机理和运行机理，即农村集体建设用地流转为什么能够形成、什么因素推动其不断发展以及流转交易系统如何运行等三个层面，系统而全面地阐述了农村集体建设用地流转机理问题。在机理分析过程中，形成机理和驱动机理更多的是关注农村集体建设用地流转的宏观方面，它们既有联系也有区别；而运行机理则深入研究完成一次流转交易的细节问题。形成机理的研究表明，农村集体建设用地流转是集体建设用地的商品属性、建筑地租以及建设用地的资本功能等内部因素和商品经济的发展、土地资源的稀缺、产业结构的变化以及分配方式的变革等外部因素综合作用的结果，并且流转的产生在时间上要早于法律的允许规则而存在，其能否形成与法律是否允许流转完全是两个概念。驱动机理分析进一步阐述了农村集体建设用地流转得以持续发展的动力问题，正是非农产业发展，农地管制制度加强，以及土地市场化程度提高，改变了城乡土地需求结构，显化了土地资产价值，促使农村集体建设用地按照市场规律进行配置，从经济和制度上驱动农村集体建设用地流转不断发展。由此可见，经济发展不但对流转的形成具有重要作用，同时还推动着流转的不断发展。运行机理分析则表明，一次流转交易从开始到完成，实际上等同于一个复杂系统的运转，这个系统包含若干基本过程且存在流转决策、要件审查、交易合法性审查、土地使用权转移等关键节点和土地登记、市场机制、公众参与等贯穿于整个过程的共同因素，时间耗费是流转经历的众多环节所带来的主要成本。 农村集体建设用地流转过程中存在的问题和客观规律表明了流转调控的必要性和依据。毫无疑问，流转调控的目的是实现资源优化配置。但不同流转调控政策的实施，其发挥作用的路径存在明显差异，政府主体间的传导路径适合于行政指令调控，中间信号变量型的传导路径适合于市场调控；而不同传导路径下的信息反馈机制以及传导时滞同样存在明显差异，这使加快流转调控传导效率，减少调控传导时滞显得尤为重要。并且单纯市场机制、数量配额控制、最低交易价格管制、收益分配制度等可供选择的调控工具中，任何一种单一的调控手段在发挥作用的同时，也可能对集体建设用地流转均衡造成不利影响。因此，农村集体建设用地流转调控需要依靠公益性用地与经营性用地调控的差异化、土地供给弹性与刚性的结合、最低价格管制的同时提高农地经营补贴、流转收益权与管理权分离、破除集体经济的“囚徒困境”等策略的配合实施。 最后，通过对流转演变、机理和调控研究成果的具体运用，本研究将相关结论上升为农村集体建设用地流转制度。本文认为，农村集体建设用地流转制度的基本结构由调控层、管理层、市场运行层和监督层等四个层面组成。在宏观调控层和管理层的前提下，农村集体建设用地进入市场发生流转交易，市场运行层因此处于核心地位，而监督层又对其他三个层面进行监控，使农村集体建设用地流转制度发挥预期作用。由于各层次相互联系且相互制约，从而形成了一个有机整体。并且，在吸纳当前农村集体建设用地流转试点相关经验的基础上，详细提出了流转的范围与条件、方式与程序、产权管理、审批管理和收益分配的一系列规则，并阐述了完善社会发展路径选择、土地用途管制、土地利用总体规划与年度计划编制、土地有形市场建设、土地征收制度改革和村民自治制度改革等配套措施的建议。 同时，本研究还提出了一些可供选择的立法建议。即，（1）立法中应该明确土地利用规划确定的城镇建设用地范围外建设经营性项目可以使用集体建设用地；（2）立法中应该明确依法取得的农村集体经营性建设用地使用权，可以出让、转让、出租或者作价入股、出资等方式流转；（3）立法中应该比照《城镇国有土地使用权出让和转让暂行条例》，吸纳广东、江苏、安徽等地的成功经验，尽快出台《农村集体建设用地流转管理办法》。当然，本研究对农村集体建设用地流转问题的探讨，仅仅只是为今后流转制度改革提供了一种思路，农村集体建设用地流转的规范有序开展，还需要长期的、循序渐进的实践。

As industrialization and urbanization developed in China, the process of farmland conversion is speeding, and which does serious harm to food, environment and ecological security. At the same time, because of land expropriation, some peasants lost their land and the conflicts coming from expropriating land have become increasingly acute. Which result to that the rights and interests of peasants are harmed, the life of land-lost peasants is difficult, and the uncertainty of social security is increased obviously. When industrialization and urbanization promote construction land expansion and arable land is occupied, the transfer of rural collective construction land is restricted by government. Therefore, lots of rural collective construction land rarely reused and can’t play a role of stock resources. Since the Reform and Opening, the system of market economy has been established and perfect, the value of urban-rural land is increased, even transfer of rural collective construction land is prevail gradually. But at present, some conditions can’t satisfy the demand of social development, such as the prohibition of rural collective construction land transfer in law, the segmentation of urban-rural land market, the low efficiency of rural collective construction land utilization, and so on. Under the targets of balancing urban and rural development, scientific development view, save and intensive utilization of land, protection of peasants’ land rights and interests, it is necessary to strengthen normative and effective management of rural collective construction land transfer. In order to promote rural collective construction land transfer orderly, this article summarizes the evolution process of rural collective construction land transfer, analyzes the inherent, essential and inevitable relation about land transfer, discusses the theory and strategy of rural collective construction land transfer regulation and control, and put forward the system framework and legislative suggestions. And this research will provide experiential and theoretical reference for land resources optimal allocation under the stratagem of rural industrialization and urbanization. According to the basic logic framework of “posing problems”, “analyzing problems” and “solving problems”, this article analyzes all the problems. In this article’s opinion, at present, theoretical and practical fields have paid attention to rural collective construction land transfer, the research of system innovation and reform about rural collective construction land transfer is comprehensive, especially the institutional change and innovation attract a wide spread attention. And at the same time, rural collective construction land transfer, which is not only land material transfer, but also land right transfer, is the inevitable requirement to optimal allocation of land resources, and relates to land supply and demand equilibrium, rights and interests equilibrium, even government intervention and market. The theories of land supply and demand equilibrium, land rent and land price, land property right, appropriate state macro-control, system and cybernetics, law and economics, which contain the expatiations of resources allocation, right structure, integration of government and market, development and management of complicated things, relationship of efficiency and equity, have important implications to the essential content and methodology of rural collective construction land transfer. The research shows, after collective owning system of rural land was built up in China, transferring of rural collective construction land experienced a long-term evolvement process. Before Reform and Opening up, because of planned economy system, rural collective construction land transfer was absolutely forbidden; but along with the Reform and Opening up and economic development, transfer-by-own and out of order was prevail; after the middle of the 1990s, transfer-exploring and management in order was strengthened and transfer in order was advanced. At present, rural collective construction land transfer has got remarkable achievements, such as unceasingly-expanded transfer range, unceasingly-improved transaction systematization level, increasingly-strengthened management measures in order, and benefits allocation gradually preferred to peasant collective and peasant. But, severe challenges face the rural collective construction land transfer, such as imperfect law system, out-of-unified urban-rural land market, inconsistent public understanding, lacking relevant measures, hard to operation, and lack of peasants’ land rights and interests’ protection. Therefore, it is need to further promote reform of rural collective construction land transfer system immediately. On the basis of evolution analysis of rural collective construction land transfer, and from the formation, driving and operation mechanism, namely why can it form, what factors and how do they influence its development and how does the transfer system operate, systemic and comprehensive analysis of rural collective construction land transfer mechanism is made with respectively application of political economic theory, econometric model and modularization method. In this part, formation and driving mechanism, which not only have connection but also difference, especially pay attention to macro level and operation mechanism further study on the detail of transfer transaction. The formation mechanism research shows that, rural collective construction land transfer is the integrated effect of external factors such as commodity attribute, construction land rent, capital function of collective construction land and internal factors such as commodity economy development, land resource scarcity, industry structure change and allotment method reform, etc. Furthermore, transfer is early occurred than permitted rules of law in time domain, and transfer’s formation and the law permitting transferring or not is absolutely two different concepts. The driving mechanism research has analyzed the driving forces of rural collective construction land transfer. The result shows that non-farm industry developing and farmland regulation enhancing and land market growthing changed structure of urban-rural land supply-demand and displayed value of land capital, which promote the market allocation of rural collective construction land, and drive rural collective construction land transfer in economy and system. Which can be seemed economic development influence transfer’s formation and development together. Finally, the operation mechanism research shows, from start to end, transfer transaction similar to complex system running. The system not only contains many processes, but also exist key processes such as decision-making, qualification checkup, validity checkup and transfer of land use right, and some sustaining factors such as land registration, market mechanism and public participation about the whole transfer procedure. Time is the main cost of so many transferring processes running. The problems and objective rules exist in rural collective construction land transfer show the need and foundation of regulation and control. Doubtlessly, the goal of regulation and control of transfer is to actualize resources optimal allocation. But, the function routes of different regulation and control policies implementation about transfer have obvious difference. The conduction paths between government bodies are suitable for regulation and control with administrative instruction, and the intermediate signal paths are suitable for market regulation and control. Furthermore, the feedback mechanism and time-delay of different conduction paths have obvious differences too. Consequently, it is necessary to speed the conduction efficiency and reduce the time-delay of transfer regulation and control. In another hand, when any single regulation tool takes effect, there would be some bad effect on rural collective construction transfer equilibrium. Therefore, many strategies about rural collective construction land transfer such as difference of public interest land and commercial land regulation and control, combination of elasticity and rigidity of land supply, increasing agricultural land subsidy when carrying out the least price regulation, separation on land usufruct and management right, elimination of prisoner's dilemma of collective economy should be actualized together. Finally, with application of research achievement of evolution, mechanism, regulation and control analysis, the article upgrades relevant conclusions to rural collective construction land transfer system. It is concluded that rural collective construction land transfer system is made up of four aspects such as micro-regulation, management, market operation and supervision. On the basis of macro-regulation and management aspects, rural collective construction land enter into market to transfer and market operation plays a core role. Furthermore, supervision aspect plays a monitoring role to other aspects and rural collective construction land transfer system would plays expected roles. Because of every aspect’s interrelationship and mutual restriction, the rural collective construction land transfer system forms an organic whole. And in the form, rural collective construction land transfer system contain transfer range and condition, manner and procedure, approval management, property right management, benefits allocation system and so on. With absorbing the experience of rural collective construction land transfer experimental unit at present, a series of rules such as transfer range and condition, manner and procedure, approval management, property right management, and benefits allocation are put forward, and some relevant measures such as social development path choice, land use regulation, general land use planning and annual land use planning, visible land market construction, system of land expropriation and villager autonomy reform are expounded in detail in this article. At the same time, this article puts forward some alternative legislative suggestions. The legislative suggestions contain that, (1) clearly stipulated collective construction land can be used in business projects not within the range of land use for construction purposes of urban areas as defined in the general plans; (2) clearly stipulated legally obtained land use right of rural collective construction land used for business purposes can be leased, transferred, rented, priced and converted into shares or contributions and so on; (3) as soon as possible promulgated Administrative Rules Governing Rural Collective Construction Land Transfer with referring to Interim Regulations of the People's Republic of China concerning the Assignment and Transfer of the Right to the Use of the State-owned Land in the Urban Areas, and absorbing the successful experiences of Guangdong, Jiangsu and Anhui Province. In conclusion, the research of rural collective construction land transfer in this article, put forward a way to land transfer system reform in a certain extent. And the rural collective construction land transfer in order needs long term and orderly gradual practice in future.