新中国70年城市化与土地制度变迁
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摘要
城市高质量发展在空间上的表现是土地的高效利用,重点在于提高土地利用效率,而这与中国特殊的城市土地制度关系密切。本文试图梳理新中国成立后70年来中国城市土地制度的演进,为中国城市土地市场上的变化寻找制度起点;在此基础上,分析城市土地利用效率的整体表现,并探究其成因,尤其是对基于地方政府的行为逻辑进行分析。具体而言,一方面,地方政府是当地城市建设用地一级市场的垄断供给方,土地出让为城市建设提供了资金支持,土地融资和城市基础设施建设投资之间存在正反馈机制,从而加速了城市化进程,导致城市向外蔓延,土地利用效率偏低。另一方面,不同城市之间和城市内部不同用地之间存在错配,影响土地价格、企业的用地成本和居民的居住成本。地方政府同时面临来自其他政府的横向竞争,在土地制度安排下,倾向于更多出让工业和商业用地以获得持续税收收入,同时限制住宅用地出让以获得更高的土地出让收入,抬高了城市化过程中的居住成本。最后,在总结前文的基础上,提出如何提高土地利用效率的政策建议,城市建设用地应当以市场配置为主,供给适应需求,形成一个竞争的城乡土地市场,提高土地配置效率,促进城市空间的高质量发展。
The spatial performance of urban high|quality development is the efficient use of land,focusing on improving the efficiency of land use.This is closely related to China's special urban land institutions.This paper attempts to sort out the evolution of China's urban land institutions in the past 70 years after the founding of the People's Republic of China,in order to find the institutional starting point for the changes in China's urban land market.On this basis,the paper analyzes the overall performance of urban land use efficiency and explores the causes behind the scene,especially conducting analysis based on the behavioral logic of local governments.Specifically,on the one hand,the local government plays the role of local urban construction land primary market monopoly supplier.Land for urban construction provides the financial support.In addition,there is positive feedback mechanism between land finance and urban infrastructure construction investment,thus speeding up the urbanization process,leading to the urban sprawl and low efficiency of land use.On the other hand,there is a mismatch between different cities and different lands within cities,which affects land prices,land costs of enterprises and living costs of residents.At the same time,local governments are faced with competition from other places.Under the arrangement of land institutions,local governments tend to transfer more industrial and commercial land to obtain continuous tax revenue and higher land transfer revenues by restricting the transfer of residential land,raising the housing cost in the process of urbanization.Finally,on the basis of summarizing the above,policy suggestions on the method to improve the efficiency of land use are put forward.Urban construction land should be dominated by market allocation,and supply should adapt to demand,so as to form a competitive urban and rural land market,improve the efficiency of land allocation,and promote the high|quality development of urban space.
The spatial performance of urban high|quality development is the efficient use of land,focusing on improving the efficiency of land use.This is closely related to China's special urban land institutions.This paper attempts to sort out the evolution of China's urban land institutions in the past 70 years after the founding of the People's Republic of China,in order to find the institutional starting point for the changes in China's urban land market.On this basis,the paper analyzes the overall performance of urban land use efficiency and explores the causes behind the scene,especially conducting analysis based on the behavioral logic of local governments.Specifically,on the one hand,the local government plays the role of local urban construction land primary market monopoly supplier.Land for urban construction provides the financial support.In addition,there is positive feedback mechanism between land finance and urban infrastructure construction investment,thus speeding up the urbanization process,leading to the urban sprawl and low efficiency of land use.On the other hand,there is a mismatch between different cities and different lands within cities,which affects land prices,land costs of enterprises and living costs of residents.At the same time,local governments are faced with competition from other places.Under the arrangement of land institutions,local governments tend to transfer more industrial and commercial land to obtain continuous tax revenue and higher land transfer revenues by restricting the transfer of residential land,raising the housing cost in the process of urbanization.Finally,on the basis of summarizing the above,policy suggestions on the method to improve the efficiency of land use are put forward.Urban construction land should be dominated by market allocation,and supply should adapt to demand,so as to form a competitive urban and rural land market,improve the efficiency of land allocation,and promote the high|quality development of urban space.
引文
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(1)数据来自于国家统计局。1949年年末总人口为54,167万人,其中城镇人口为5,765万人,城镇人口占比约为10.64%。
(2)数据来自于国家统计局。
(1)2013年《土地管理法》中取消了土地补偿标准上限的规定。
(1)The Wharton Residential Land Use Regulatory Index。
(1)中国财政部(http://gks.mof.gov.cn/zhengfuxinxi/tongjishuju/201401/t20140123_1038541.html);新浪(http://finance.sina.com.cn/g/20110107/12029219005.shtml);中国国土资源部(www.mlr.gov.cn/xwdt/jrxw/201301/t20130125_1178667.htm,www.mlr.gov.cn/xwdt/jrxw/201004/t20100409_144481.htm%202009);中国国家统计局(www.stats.gov.cn/tjsj/zbjs/201310/t20131029_449552.html)
(1)1998年10月30日前,对土地出让有兴趣的单位直接与村民进行价格谈判,土地行政机构仅发挥了有限的调解人作用。这一协商过程增加了对农民的补偿。然后1999年经修订的土地管理法发布后,协议出让转变为公告出让。公告出让的方式使得土地行政机构成为协商代表,土地的买家与农民不再直接联系。
(2)相关数据来自新浪财经:http://finance.sina.com.cn/roll/2018-09-29/doc-ihkmwytp9279564.shtml
(1)数据来自中国城市建设年鉴,比率由作者整理计算。
(2)城区人口密度=城区人口/城区建成面积,数据来源中国城市建设年鉴。
(3)数据来源:中国开发区网。
(4)数据来源:中国商务部:2018年国家级经济技术开发区主要经济指标情况。
(1)特别感谢陆铭教授提供的新城数据。
(2)新城行政等级分为:国家级、省级、市级、县级,根据其主管行政机构级别而定,百度百科有明确资料,国家级、省级新区大多跨市,国家级新区由中央主管,省级新区由省政府主管。
(3)根据新城规划文件信息及规划图,使用全能电子地图下载器描绘新城边界,导出边界要素点的经纬度,再使用ArcMap软件进行点转线、线转面,形成含有经纬度信息的新城区域。
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(1)数据来自于国家统计局。1949年年末总人口为54,167万人,其中城镇人口为5,765万人,城镇人口占比约为10.64%。
(2)数据来自于国家统计局。
(1)2013年《土地管理法》中取消了土地补偿标准上限的规定。
(1)The Wharton Residential Land Use Regulatory Index。
(1)中国财政部(http://gks.mof.gov.cn/zhengfuxinxi/tongjishuju/201401/t20140123_1038541.html);新浪(http://finance.sina.com.cn/g/20110107/12029219005.shtml);中国国土资源部(www.mlr.gov.cn/xwdt/jrxw/201301/t20130125_1178667.htm,www.mlr.gov.cn/xwdt/jrxw/201004/t20100409_144481.htm%202009);中国国家统计局(www.stats.gov.cn/tjsj/zbjs/201310/t20131029_449552.html)
(1)1998年10月30日前,对土地出让有兴趣的单位直接与村民进行价格谈判,土地行政机构仅发挥了有限的调解人作用。这一协商过程增加了对农民的补偿。然后1999年经修订的土地管理法发布后,协议出让转变为公告出让。公告出让的方式使得土地行政机构成为协商代表,土地的买家与农民不再直接联系。
(2)相关数据来自新浪财经:http://finance.sina.com.cn/roll/2018-09-29/doc-ihkmwytp9279564.shtml
(1)数据来自中国城市建设年鉴,比率由作者整理计算。
(2)城区人口密度=城区人口/城区建成面积,数据来源中国城市建设年鉴。
(3)数据来源:中国开发区网。
(4)数据来源:中国商务部:2018年国家级经济技术开发区主要经济指标情况。
(1)特别感谢陆铭教授提供的新城数据。
(2)新城行政等级分为:国家级、省级、市级、县级,根据其主管行政机构级别而定,百度百科有明确资料,国家级、省级新区大多跨市,国家级新区由中央主管,省级新区由省政府主管。
(3)根据新城规划文件信息及规划图,使用全能电子地图下载器描绘新城边界,导出边界要素点的经纬度,再使用ArcMap软件进行点转线、线转面,形成含有经纬度信息的新城区域。
(1)2010年《国务院关于中西部地区承接产业转移的指导意见》(二十八)土地政策。在坚持节约集约用地的前提下,进一步加大对中西部地区新增建设用地年度计划指标的支持力度,优先安排产业园区建设用地指标。严格执行工业用地最低出让价标准,进一步完善体现国家产业政策导向的最低价标准实施政策。探索工业用地弹性出让和年租制度。
(2)www.landchina.com/default.aspx?tatender=325&WebShieldDRSessionVerify=9Pem7QKq1FfSzYAPMVd7
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