城镇化进程中的城乡建设用地指标流转模式研究
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摘要
目前,我国正处在城镇化进程的快速发展中,城镇化是产业结构调整引起的人口由农村向城市转移,城市规模不断扩大的过程。城市规模扩大的一个显著结果就是城市建设用地规模的迅速增加,土地征用需求量常年处于高水平。这种变化给我国的耕地保护带来了巨大的压力,我国的耕地保护目标和相关政策在现有的操作模式下都难以实现,耕地量逐年下降,耕地质量也不断下滑。而随着人口的流出,农村的建设用地却存在闲置和过剩的现象。如何利用城乡建设用地的逆向变化破解城镇建设与耕地保护的平衡问题成为一个重要课题。
论文从新制度经济学以及土地流转的相关理论出发,首先分析了我国的土地利用体系和城乡土地结构变化的现状,在已过去的几十年,我国城镇人口不断增加,城镇规模不断扩大,每年新征用的土地量也一直居高不下,与此同时,耕地量却年年下降;而后论文分析了产生这种变化的原因,这种城乡土地结构的内部变化本质上是城镇化建设的必然,但现在这种变化规模却不是正常的,土地结构变化中不合理现象存在的原因就是操作模式的不科学,具体说来就是主体的错位和利益分配的不合理;然后论文又以此为基础并结合重庆市的创新举措提出了将城乡建设用地指标挂钩,以“地票制”来代替现有模式,克服以往的顽疾。在提出“地票制”之后,论文对“地票制”进行了流程分解并进行了分析,“地票制”就是通过“地票”的产生、上市及交易实现建设用地指标流转的一种模式。“地票制”的操作流程共包含九个环节,五个参与主体。首先土地权利人由于入城等原因空置了其在农村的宅基地或其他用地,他们请专业的土地处理机构对符合复垦条件的土地进行复垦,复垦后交国土部门审核,审核确定耕地的质量等级并确定“地票”的票面额度,最后将“地票”发放土地权利人;土地权利人得到“地票”后,向当地土地交易所提交交易申请,由土地交易所组织专门的交易会进行拍卖,拍卖成交后,土地权利人获得收益,“地票”购得人获得相应额度的建设用地指标;论文最后识别了“地票制”的三个关键环节并一一就其操作方法进行了研究。
China is currently in the process of rapid urbanization, and the urbanization is a process that the population resulted from adjustment of industrial structure shift from rural areas to cities and city scales continue to enlarge. One significant result of enlarging city scale is that the urban construction land scales rapidly increase and demand for land requisition is in the high level. This change brings great pressure to our cultivated land protection, and both our goal and relevant policies of cultivated land protection are difficult to achieve in the existing operation mode, with gradually decline of cultivated land in quantity and quality. However, as the outflow of population, rural construction land is idle and excess. How to use the reverse change of urban and rural construction land to solve the balance problem of urban and rural construction and cultivated land protection becomes an important issue.
Starting from new institutional economics and land circulation related theory, firstly this paper analyses the system of our land use and the status of urban and rural land structure change that in the past decades china urban population increases constantly, and town scale expands unceasingly, and every year new requisition of land quantity is also stubbornly high while cultivated land quantity decreases year by year. Then this paper analyzes the causes of this change that this kind of urban and rural land structure internal change is essentially inevitable of the urbanization construction, but now this change scale is not normal. The reason of unreasonable phenomenon in land structure change is the operation mode is not scientific, and more specifically is the subject is dislocated and distribution of interests is not reasonable. Based on it, the article proposes linking urban and rural construction land index together with innovation measures of the city of Chongqing, with“land certificate institution " instead of existing mode, overcoming the problems before. After putting forward“land certificate institution”, the paper decomposes and researches the process of“land certificate institution”, and indicates that the“land certificate institution”is a kind of mode that through the emergence, ticket listed and trading of“land certificate”to realize construction land circulation index. Operation flow of“land certificate institution " contains nine links and five participating subject. Firstly, the land of Villagers become bare when they move to the cities, they hire professional agency to reclamate their land, and then the department of homeland check the quality and quantity of the land to determine the amount of the land certification, after this, the owner get the land certification. Then, the owner apply for transaction of the land certification, the trading organizations organize auction after they receive the application, by the trading, the owner get the money, buyers get the land certification. After putting forward“land certificate institution”, the paper decomposes and researches the process of“land certificate institution”, identifies three key links of“land certificate institution”and studies the operation method.
论文从新制度经济学以及土地流转的相关理论出发,首先分析了我国的土地利用体系和城乡土地结构变化的现状,在已过去的几十年,我国城镇人口不断增加,城镇规模不断扩大,每年新征用的土地量也一直居高不下,与此同时,耕地量却年年下降;而后论文分析了产生这种变化的原因,这种城乡土地结构的内部变化本质上是城镇化建设的必然,但现在这种变化规模却不是正常的,土地结构变化中不合理现象存在的原因就是操作模式的不科学,具体说来就是主体的错位和利益分配的不合理;然后论文又以此为基础并结合重庆市的创新举措提出了将城乡建设用地指标挂钩,以“地票制”来代替现有模式,克服以往的顽疾。在提出“地票制”之后,论文对“地票制”进行了流程分解并进行了分析,“地票制”就是通过“地票”的产生、上市及交易实现建设用地指标流转的一种模式。“地票制”的操作流程共包含九个环节,五个参与主体。首先土地权利人由于入城等原因空置了其在农村的宅基地或其他用地,他们请专业的土地处理机构对符合复垦条件的土地进行复垦,复垦后交国土部门审核,审核确定耕地的质量等级并确定“地票”的票面额度,最后将“地票”发放土地权利人;土地权利人得到“地票”后,向当地土地交易所提交交易申请,由土地交易所组织专门的交易会进行拍卖,拍卖成交后,土地权利人获得收益,“地票”购得人获得相应额度的建设用地指标;论文最后识别了“地票制”的三个关键环节并一一就其操作方法进行了研究。
China is currently in the process of rapid urbanization, and the urbanization is a process that the population resulted from adjustment of industrial structure shift from rural areas to cities and city scales continue to enlarge. One significant result of enlarging city scale is that the urban construction land scales rapidly increase and demand for land requisition is in the high level. This change brings great pressure to our cultivated land protection, and both our goal and relevant policies of cultivated land protection are difficult to achieve in the existing operation mode, with gradually decline of cultivated land in quantity and quality. However, as the outflow of population, rural construction land is idle and excess. How to use the reverse change of urban and rural construction land to solve the balance problem of urban and rural construction and cultivated land protection becomes an important issue.
Starting from new institutional economics and land circulation related theory, firstly this paper analyses the system of our land use and the status of urban and rural land structure change that in the past decades china urban population increases constantly, and town scale expands unceasingly, and every year new requisition of land quantity is also stubbornly high while cultivated land quantity decreases year by year. Then this paper analyzes the causes of this change that this kind of urban and rural land structure internal change is essentially inevitable of the urbanization construction, but now this change scale is not normal. The reason of unreasonable phenomenon in land structure change is the operation mode is not scientific, and more specifically is the subject is dislocated and distribution of interests is not reasonable. Based on it, the article proposes linking urban and rural construction land index together with innovation measures of the city of Chongqing, with“land certificate institution " instead of existing mode, overcoming the problems before. After putting forward“land certificate institution”, the paper decomposes and researches the process of“land certificate institution”, and indicates that the“land certificate institution”is a kind of mode that through the emergence, ticket listed and trading of“land certificate”to realize construction land circulation index. Operation flow of“land certificate institution " contains nine links and five participating subject. Firstly, the land of Villagers become bare when they move to the cities, they hire professional agency to reclamate their land, and then the department of homeland check the quality and quantity of the land to determine the amount of the land certification, after this, the owner get the land certification. Then, the owner apply for transaction of the land certification, the trading organizations organize auction after they receive the application, by the trading, the owner get the money, buyers get the land certification. After putting forward“land certificate institution”, the paper decomposes and researches the process of“land certificate institution”, identifies three key links of“land certificate institution”and studies the operation method.
引文
[1]白雪燕.统筹城乡发展推进城镇化建设[D].燕山大学, 2009.
[2]张莹莹,刘祥红.中国城镇化进程中存在的问题研究[J],安徽农业科学, 2009, 37 (23) : 11251 -11252
[3] Demsetz, H. Toward a theory of Property rights[J], The American Economic Review, 1967, 57(2): 347-359
[4] Alchian, A.A.& Demsetz, H. The property Right Paradigm[J]. The Journal of Economic History, 1973, 33(1): 16-27
[5]谈万强.新制度经济学发展观透视[J],南京政治学院学报.2001,1(26):22-26
[6] Arrow, K.J. The Organization of Economic Activity: Issues Pertinent to the Choice of Market versus Non-market Allocation[J]. The Analysis and Evaluation of Public Expenditure: The PPB System, GovemmentPrintingOffiee, 1969: 47-64.
[7] Arrow,K.J. & Chenery,H.B. Capital-Labor substitution and economic efficiency[J]. the review of economics and statistics, 1961, (8): 225-245
[8]肯.阿罗.信息经济学[M].北京:北京经济学院出版社, 1989: 78-79
[9] Grossman&Hart, An Analysis of the principle-agent problem , American Economic Review, 1983(83): 7~45
[10] North, D.C. Institutional change and economic growth[J]. The journal of Economic History, 1971, 31(1): 118-125.
[11]杨瑞龙.论我国制度变迁方式与制度选择目标的冲突及其协调[J].经济研究, 1994, (5):
[12]张爱云.关于推进农村土地使用权流转的思考[J].学习论坛,2003(7):36—38.
[13] Carter, Yang Yao. Transfer Rights, Agricultural Productivity and Investment Industrializing Economy, 1999, (8):98-102
[14] Krusekopf. Diversity in land-tenure arrangements under the house hold responsibility system in China. China Economic Review, 2002:220-222
[15] Costonis, J.J. Development Rights Transfer: An exploratory essay[J]. The Yale Law Journal, 1973, 83(1): 75-128.
[16] Dorfman, J.H.& Atiles, J.H. The Feasibility of a transferable Development Rights Program For Athens-Clarke County, Georgia[R]. The University of Georgia Alliance for Quality Growth and the Athens-Clarke County Planning Department, 2003.
[17] Field, B.C & Conrad, J.M. Economic issues in programs of transfrable development rights[J]. Land Economics,1975,51(4): 331-340.
[18] Levinson, A. Why oppose TDRs?: Transferable development rights can increase overall development[J]. Regional Science and Urban Economics, 1997,(27): 283-296.
[19] Schwartz, S.I. & Hansen, D.E. Two methods for preserving agricultural land at the urban fringe: use-value assessment and transferable development rights[J].Agriculture and Environment, 1975, (2):172-177.
[20]吴月芽.农村集体建设用地使用权入市流转的可行性探析[J].经济地理, 2005, 25〔3): 401-405.
[21]朱靖,何训坤.对农村集体建设用地流转必然性的思考[l].农村经济, 2002(4〕:17-18.
[22]吴群,史晓云.培育农村集体建设用地有形市场当议[J].江苏地矿信息, 2002〔3).
[23]李植斌.农村集体建设用地流转研究[J].国土资源科技管理, 2003(10).
[24]陈勇.农村集体建设用地流转的障碍与对策[J].经济论坛, 2003(12).
[25]张雪琴,川萌.初探农村集体建设用地使用权流转中的产权制约问题[J].资源与产业, 2006(4):14-18.
[26]田中文,邓良基,李何超.完善集体土地产权规范集体建设用地流转[J].资源与人居环境, 2007(2): 20-22.
[27]谭术魁,彭补拙.农村集体建设用地直接流转的支撑体系研究[J].财经研究, 2002(10)
[28]程久苗.农村集体建设用地流转制度的创建及相关问题的思考[J].南京农业大学学报, 2002(3).
[29]沈守愚.论设立农地发展权的理论基础和重要意义[J].中国土地科学, 1998,12(1):17-19.
[30]胡兰岭.土地发展权论[J].河北法学, 2002,20(2): 143.
[31]李世平.土地发展权浅说[J].国土资源科技管理, 2002,19(2): 15.
[32]侯华丽,杜舰.土地发展权与农民权益的维护[J].农村经济, 2005, (11): 78-79.
[33]谭峻,戴银萍和高伟.浙江省基本农田易地有偿代保制度个案分析[J].管理世界, 2004,(3): 105-110.
[34]施建刚,黄晓峰和唐代中.对耕地占补动态平衡的经济学反思[J].农业现代化研究, 2007, 28(1): 62-64.
[35]郭娇玉.我国耕地保护法研究[D].中国海洋大学, 2008.
[36]严岩,赵景柱,王延春,罗祺姗.中国耕地资源损失驱动力分析[J].生态学杂志, 2005, 7: 817- 822.
[37]培强.国土荒漠化威胁在迫近[N].《光明日报》,1997,6-2.
[38]张士功.中国耕地资源的基本态势及其近年来数量变化研究[J].《中国农学通报》, 2005,6: 374-378.
[39]张先锋,程瑶,李敦瑞.我国耕地保护的约束条件分析与政策取向[J]《.科学经济社会》2005, 3期: 34-37.
[40]兰芳.我国城镇化发展的问题与对策[D].华东师范大学, 2009.
[41]袁秀杰.不同地貌区及不同尺度的耕地质量评价与衔接研究[D].山东农业大学, 2009.
[42]高向军,马仁会.中国农用土地等级评价研究进展[J].农业工程学报, 2002, 18(1): 165-168.
[43]许学工.黄河三角洲土地质量模糊综合评价[J].自然资源学报, 1992, 7(1): 43-54.
[2]张莹莹,刘祥红.中国城镇化进程中存在的问题研究[J],安徽农业科学, 2009, 37 (23) : 11251 -11252
[3] Demsetz, H. Toward a theory of Property rights[J], The American Economic Review, 1967, 57(2): 347-359
[4] Alchian, A.A.& Demsetz, H. The property Right Paradigm[J]. The Journal of Economic History, 1973, 33(1): 16-27
[5]谈万强.新制度经济学发展观透视[J],南京政治学院学报.2001,1(26):22-26
[6] Arrow, K.J. The Organization of Economic Activity: Issues Pertinent to the Choice of Market versus Non-market Allocation[J]. The Analysis and Evaluation of Public Expenditure: The PPB System, GovemmentPrintingOffiee, 1969: 47-64.
[7] Arrow,K.J. & Chenery,H.B. Capital-Labor substitution and economic efficiency[J]. the review of economics and statistics, 1961, (8): 225-245
[8]肯.阿罗.信息经济学[M].北京:北京经济学院出版社, 1989: 78-79
[9] Grossman&Hart, An Analysis of the principle-agent problem , American Economic Review, 1983(83): 7~45
[10] North, D.C. Institutional change and economic growth[J]. The journal of Economic History, 1971, 31(1): 118-125.
[11]杨瑞龙.论我国制度变迁方式与制度选择目标的冲突及其协调[J].经济研究, 1994, (5):
[12]张爱云.关于推进农村土地使用权流转的思考[J].学习论坛,2003(7):36—38.
[13] Carter, Yang Yao. Transfer Rights, Agricultural Productivity and Investment Industrializing Economy, 1999, (8):98-102
[14] Krusekopf. Diversity in land-tenure arrangements under the house hold responsibility system in China. China Economic Review, 2002:220-222
[15] Costonis, J.J. Development Rights Transfer: An exploratory essay[J]. The Yale Law Journal, 1973, 83(1): 75-128.
[16] Dorfman, J.H.& Atiles, J.H. The Feasibility of a transferable Development Rights Program For Athens-Clarke County, Georgia[R]. The University of Georgia Alliance for Quality Growth and the Athens-Clarke County Planning Department, 2003.
[17] Field, B.C & Conrad, J.M. Economic issues in programs of transfrable development rights[J]. Land Economics,1975,51(4): 331-340.
[18] Levinson, A. Why oppose TDRs?: Transferable development rights can increase overall development[J]. Regional Science and Urban Economics, 1997,(27): 283-296.
[19] Schwartz, S.I. & Hansen, D.E. Two methods for preserving agricultural land at the urban fringe: use-value assessment and transferable development rights[J].Agriculture and Environment, 1975, (2):172-177.
[20]吴月芽.农村集体建设用地使用权入市流转的可行性探析[J].经济地理, 2005, 25〔3): 401-405.
[21]朱靖,何训坤.对农村集体建设用地流转必然性的思考[l].农村经济, 2002(4〕:17-18.
[22]吴群,史晓云.培育农村集体建设用地有形市场当议[J].江苏地矿信息, 2002〔3).
[23]李植斌.农村集体建设用地流转研究[J].国土资源科技管理, 2003(10).
[24]陈勇.农村集体建设用地流转的障碍与对策[J].经济论坛, 2003(12).
[25]张雪琴,川萌.初探农村集体建设用地使用权流转中的产权制约问题[J].资源与产业, 2006(4):14-18.
[26]田中文,邓良基,李何超.完善集体土地产权规范集体建设用地流转[J].资源与人居环境, 2007(2): 20-22.
[27]谭术魁,彭补拙.农村集体建设用地直接流转的支撑体系研究[J].财经研究, 2002(10)
[28]程久苗.农村集体建设用地流转制度的创建及相关问题的思考[J].南京农业大学学报, 2002(3).
[29]沈守愚.论设立农地发展权的理论基础和重要意义[J].中国土地科学, 1998,12(1):17-19.
[30]胡兰岭.土地发展权论[J].河北法学, 2002,20(2): 143.
[31]李世平.土地发展权浅说[J].国土资源科技管理, 2002,19(2): 15.
[32]侯华丽,杜舰.土地发展权与农民权益的维护[J].农村经济, 2005, (11): 78-79.
[33]谭峻,戴银萍和高伟.浙江省基本农田易地有偿代保制度个案分析[J].管理世界, 2004,(3): 105-110.
[34]施建刚,黄晓峰和唐代中.对耕地占补动态平衡的经济学反思[J].农业现代化研究, 2007, 28(1): 62-64.
[35]郭娇玉.我国耕地保护法研究[D].中国海洋大学, 2008.
[36]严岩,赵景柱,王延春,罗祺姗.中国耕地资源损失驱动力分析[J].生态学杂志, 2005, 7: 817- 822.
[37]培强.国土荒漠化威胁在迫近[N].《光明日报》,1997,6-2.
[38]张士功.中国耕地资源的基本态势及其近年来数量变化研究[J].《中国农学通报》, 2005,6: 374-378.
[39]张先锋,程瑶,李敦瑞.我国耕地保护的约束条件分析与政策取向[J]《.科学经济社会》2005, 3期: 34-37.
[40]兰芳.我国城镇化发展的问题与对策[D].华东师范大学, 2009.
[41]袁秀杰.不同地貌区及不同尺度的耕地质量评价与衔接研究[D].山东农业大学, 2009.
[42]高向军,马仁会.中国农用土地等级评价研究进展[J].农业工程学报, 2002, 18(1): 165-168.
[43]许学工.黄河三角洲土地质量模糊综合评价[J].自然资源学报, 1992, 7(1): 43-54.