摘要
土地是最根本的生产要素之一,土地问题是社会经济生活中的根本性问题之一,所以对于土地问题的研究直接关系到社会经济的深层问题。从对土地利用问题的研究演变和实践发展看,从土地使用制度改革、征地制度改革、土地用途管制制度改革到宏观调控,对于土地利用问题的研究始终伴随着中国改革开放的进程,在争论中突破,在突破中发展,在发展中完善。
城市土地资源如何配置是土地经济学和土地管理学研究的核心问题。中国目前处于城市化发展的快速阶段,加上由于中国庞大的人口基数所必须面对的粮食问题和耕地保护问题,使得中国的城市土地资源配置问题的战略性、重要性都十分突出。城市土地作为各类建设的主要载体,在面对转变经济增长方式、坚持科学发展观、实现可持续发展的要求面前首先需要破解资源的配置方式。
围绕着城市土地资源配置的研究,学者们从各个角度,自身领域出发进行献计献策,归纳起来,主要有几个方面:一是从中国社会经济发展所处的特定历史阶段入手分析城市化快速发展过程中的城市土地资源配置;二是从中国的行政管理体制和分权结构角度分析地方政府的博弈行为;三是从完善行政管理手段,发挥市场机制作用的角度分析有效的管理方式和手段。
本研究则从政府行为角度出发研究城市土地资源有效配置问题。中国政府既是地方的管理者,也是地方经济的推动者和参与者,随着放权让利和分灶吃饭财政体制的实施,拥有较大资源配置权的地方政府同时成为多年追求经济利益最大化的政治组织。政府在资源配置中的特殊地位使得在城市土地资源配置中首先要研究的是政府的行为特征、行为动力和行为约束问题。从国内外对于城市土地资源配置和政府行为研究的文献基础上,对中国城市土地资源配置制度变迁进行考察和分析,针对不同层面政府主体对城市土地资源配置的影响,分析在城市土地资源配置中的主要决定因素和有效影响途径,从政府竞争、政府失效、政府创新角度探讨了政府行为对宗地价格影响进而对政府目标的影响程度、土地闲置大量存在中的政府行政和市场调节因素失效原因,土地用途管制中的政府创新及影响,提出实现城市土地资源集约配置的构想,以期为中国城市土地资源集约配置实践和改革提供政策依据。
本论文由导论和七章主体内容构成。第一章,导论。阐述了研究的背景、意义,研究的基本概念和基本假设,研究框架和研究方法,以及可能的创新点和不足;第二章,综述了城市土地资源配置和政府行为研究的国外和国内的研究进展;第三章,从制度变迁理论的角度,回顾和总结了城市土地资源配置过程中的制度变迁,根据城市土地制度涉及的四个方面,即土地用途管制制度、土地产权制度、土地征用制度和土地利用制度分别进行了制度层面变化的分析;第四章,以地方政府为研究对象,分析了在城市土地资源配置中的宏观、中观和微观行为主体对于城市土地的主导目标和调控手段。按照对于城市土地资源配置的影响层面,宏观层面为中央政府、中观层面为省级政府、微观层面为地方政府;第五章,以土地价格为研究对象,以政府竞争为切入点,分析了当前存在的土地低价竞争的表现和规律,将工业用地低价竞争作为土地价格竞争的典型代表。为了进一步分析在政府竞争中具体宗地价格的影响因素以及这种竞争在多大程度上影响了地区的招商引资行为,分两个角度进行了具体的实证研究。第一个角度是政府竞争对宗地价格的影响,第二个角度是政府竞争中土地优惠和税收优惠对招商引资的影响程度;第六章,以土地税收为研究对象,分析了政府设置土地税收的历史演变及其与国外土地税收制度的比较。对税收制度对土地资源配置影响的三种路径进行了分析,指出现阶段大量的闲置土地的存在是低价取得土地以及缺少有效惩处手段的结果,土地税收作为市场调节手段,应在调整土地资源配置方面发挥积极的作用。从完善现有税制对土地闲置现象调整的角度,提出完善土地增值税和增加土地闲置税是两条必要的途径;第七章,分析了在分区管制中的政府创新行为,回顾了土地分区管制中国内外出现的两种主要的管理手段,一是土地用途管制,二是土地发展权,对如何运用土地发展权的操作,完善中国土地分区管理制度提出了四条建议;第八章,基于前面各章对于城市土地资源配置中政府行为在土地价格、土地税收、总量调控三方面的阐述,完整的提出了实现城市土地资源集约配置的政府行为目标。
本论文同国内已有的研究比较,具有以下的特点:第一是从研究角度和研究思路上,将政府行为和城市土地资源配置研究相结合,使得对城市土地资源配置研究中要解决的问题针对性更加突出。在城市土地资源配置中,配置的结构和配置的产出是配置效率的主要体现,配置结构体现在土地利用率,配置的产出体现在土地价格,因而将配置结构和配置产出进行整合研究才能完整的体现出城市土地配置绩效,现有的研究多是集中在某一个方面,缺少对城市土地配置的完整和系统的考察;第二从研究层面上,虽然在城市土地资源配置中的参与主体是多方面的,除了政府主体,还是企业主体、个人行为,但政府双重主体的地位有必要使提高城市土地配置绩效的切入点进一步缩小至如何提高和改善政府在配置城市土地资源中的重要作用,已有的文献在研究城市土地资源配置中也有涉及政府行为,但都是单一的研究某一层级的政府行为,其实政府行为是一个多层次主体的集合,中央政府、省级政府和地方政府参与管理的目的和导向性均有很大的差异,在研究城市土地资源配置绩效中分析各层次政府主体的行为模式和影响具有很重要的意义;第三,从研究内容上,本研究围绕土地价格、土地税收及土地用途管制中的政府竞争、政府失效及政府创新进行了政府行为对城市土地资源配置影响的研究,将城市土地资源配置中的用地结构问题和用地产出问题纳入一个整体的框架中,而以往的研究多是注重于某一单一的因素。
本研究的主要结论和创新点如下:
一、通过制度经济学分析的视角归纳了中国城市土地集约配置的演变和演变的路径。既有的研究对城市土地使用制度的发展演变已有较多的阐述。但从制度经济学制度变迁和诱致性演变的角度重新进行了归因分析。
二、从政府层级层面通过宏观、中观和微观三个层面分析了政府各层面在土地资源配置中的影响作用,指出中观层面政府主体和微观层面政府主体是城市土地资源配置中的主导因素。说明在城市土地资源配置中,应充分注重中观和微观层面不同地区政府主体行为的差异性,在宏观政府调控中更多重视如何通过政策引导和调控发挥中观和微观层面政府主体的主导作用和积极作用。以往的研究多侧重从地方政府主体的角度进行分析,而将地方政府作为城市土地资源配置的“利益人”,从三个不同层级的政府主体进行分析,能更客观和深入的了解政策的传导机制和异动情况。
三、从政府行为角度分析了政府竞争导致的低地价问题。探讨中国现行的政府考核体制和财政集分权体制对地方政府行为的影响,指出由于地方政府作为利益人的选择,导致了地方之间的竞争,在这种竞争过程中,土地要素中土地价格如何受到影响,以及土地价格的变异行为如何影响各地招商引资。
四、从优惠政策的分类和归因中具体分析各类因素对政府工作实绩的影响。以往的文献中多侧重于从单一因素的角度,如税收优惠、土地价格优惠的角度分别分析相应因素对政府招商引资的影响,但并将各些因素影响根据实际情况作为统一的政策关联体来进行系统分析。本研究首次将税收优惠和土地优惠统一进行分析,模拟分析过程更符合现实情况,其结果有助于检视各类政策对城市土地资源配置的直接影响、间接影响和联动影响。
五、从实证分析角度研究政府低地价策略对招商引资的实际影响程度。以往的研究虽然也在影响因素中都提到土地地价影响,但较少运用实际数据进行模型分析,本研究采用了大量充分的数据和地块资源,数据总量为819个地块,地块涉及浙江省内共64个城市(包括县级市和地级市所在地),以实证分析结果对低地价策略的调整提出建议。
六、从制度优化的角度分析了在土地产权被严格界定的前提下如何优化发挥市场机制引导土地利用行为的问题。由于对土地使用者所享有的土地使用权权益内核界定和处分过程中的模糊部分导致了在土地资源配置上的低效。在二级市场土地利用低效的情况下,提出应进一步通过市场手段特别是税收手段完善制度设计。
七、从制度创新的角度分析了土地宏观调控机制的背景下基于各地不同经济发展水平的实际,如何在执行中央政府情况下又能依各地情况不同而不至于产生一刀切的情况,以浙江省基本农田易地代保的案例进行理论分析、操作效果和与美国案例对比,对土地实施机制上的制度创新进行了理论的探索。
Land is one of the most fundamental factors of production and land problem is one of the basic problems in social economic life. Thus, the study of land is directly related to the deep problem of social economy. From the perspective of research evolution and practical development of land use problem, from the reform of land use system, the reform of land expropriation system, the reform of land use control to macro control, it is obvious that the study of land use problem is always associated with the reform and opening up of this country, it breaking through the argument, developing through breakthrough and improving through development.
Land resources allocation is the core problem of land economy and land management. China is at the fast stage of urbanization development currently, the food and cultivated land protection problems that China has to face to owing to the immense population base, both of the above two factors have made the allocation of urban land resources very strategic and important. Faced with the requirement of transforming the mode of economic growth, maintaining scientific concept of development and realizing sustainable development, the way to distribute urban land resources, major carrier of different kinds of construction, has to be cracked.
For the research of urban land resources allocation, scholars have offered their proposals from all angles based on their own area. To sum up, there are several points as follows: first, to analyze the urban land resources allocation at the fast process of urbanization based on the specific historical stage of China's social and economic development; second, to analyze the game behavior of local government from the angle of China's administrative system and the structure of power separation; third, to analyze the effective management method from the angle of optimizing administrative system and giving play to the market mechanism.
This thesis studies how to allocate urban land resources effectively from the government behavior perspective. Governments in China are not only the supervisors but also the promoters and participants of local economy. With the implementation of the financial system of decentralization of power and transfer of profits and decentralization of tax, local governments, who have greater power to allocate resources, have become the political organizations to pursue maximum economical benefits at the same time. The special position the governments hold has made that the feature of governments' behavior, motivation of action and constraint in action have to be researched first during the distribution of urban land resources. Based on the literature on the research of urban land resources allocation and government behavior at home and abroad, this thesis researches and analyzes the evolution of China's urban land resources allocation system in order to analyze the primary factor to determine and the effective way to influence the urban land resources allocation; the author, from the perspective of government competition, government failure and government creation, discusses the influence of government behavior on land lot price and further analyzes the degree of influence of government behavior on the aim of government, analyzes the reasons why government administration and market regulation fail to take effect for the existence of much unused land and probes into the government creation and its influence in the process of land use control. This thesis puts forward the proposition to realize the intensive allocation of urban land resources in hopes that it can provide certain policy basis for the practice and reform of the intensive allocation of urban land resources in China.
This thesis comprises of introduction and the main body of seven chapters. The first chapter is introduction, which describes the background and significance of this research, introduces the basic conception and assumption, presents the framework and method of the research and possible creation and insufficiency of this research; the second chapter gives an overview of the development of the research on urban land resources allocation and government behavior at home and abroad; the third chapter reviews and summarizes the change of the regulations in the process of urban land resources allocation from the angle of the regulation evolving theory. It analyzes the change of land use control regulation, land property rights regulation, land requisition regulation and land use regulation respectively; the forth chapter deals with the study of governments and analyzes the leading aims and control means of the macroscopic, middlescopic and microscopic behavior subjects during the process of urban land resources allocation. According to the influence level on urban land resources allocation, macroscopic level refers to central government, while middlescopic level indicates provincial governments and microscopic level refers to local governments; the fifth chapter studies the land price. It starts from the government competition, takes low price competition of industrial-used land as the typical example of the land price competition and analyzes the embodiment and law of low price competition existed currently. In order to further analyze different elements that influence the specific land lot price during government competition and to which extent this competition affects the investment promotion, the author tries to conduct detailed research from two angles based on real evidence. The first angle is the effect on land lot price of government competition while the second is the extent of the influence on investment promotion from preferential land price and tax incentives during government competition; the sixth chapter takes land-related tax for research subject. It analyzes the evolution of government-regulated land tax and makes a comparison with the land tax abroad. It conducts analysis of the three aspects of the influence on land resources allocation from tax regulations and points out that the existence of large amount of unused land is resulted from the low acquisition price and a lack of effective punishment. Land tax, as a market control measure, should play a positive role in regulating land resources allocation. Improving land value-added tax and introducing vacant land tax are two necessary measures if from the perspective of regulating the phenomenon of unused land by means of improving the current taxes; the seventh chapter analyzes the creating action of the government during districted administration and reviews two major management measures occurred at home and abroad during districted administration. One is land use control and the other is the right of land development. It puts forward four suggestions on how to use the right of land development and how to improve districted administration regulation in China; the eighth chapter completely raises the aim of government behavior in order to realize intensive allocation of urban land resources on the basis of the analysis of government behavior in land price, land tax and total adjustment during the process of urban land resources allocation in the above seven chapters.
Compared to other researches existing domestically, this thesis has several characteristics as follows: first, if looking from the perspective and logic of the research, this thesis combines government behavior with urban land resources allocation, which makes the problems needed to be resolved during urban land resources allocation more obvious. During urban land resources allocation, the efficiency of the allocation is mainly embodied by the structure and output of the allocation. Allocating structure is manifested in the ratio of land utilization while allocating output in land price. Therefore, the achievement of the allocation could be made clear only if the allocating structure and allocating output have been studied together. But the current research mostly focuses on one aspect, lacking a complete and systematic research on urban land allocation. Secondly, from the research level, although the participants in the allocation of urban land resources are many, not only governments, but also involving enterprises and individuals, the double positions the governments hold makes it necessary for the governments to start to consider how to enhance and improve the play in allocating urban land resources when trying to improve the achievements of urban land allocation. The existed literature do have talked about the government behavior when studying the urban land allocation, but they only studied about certain layer of the governments. As a matter of fact, government behavior is a collection of multi-layer subjects. Since central government, provincial governments and local governments differ a lot in their purposes and guiding function when they involve in the management, it is of great significance to analyze the behavior model and influence of the governments at different layers in the study of urban land allocation achievements. Thirdly, from the research content, this thesis conducts research on the government behavior's influence on urban land allocation, specifically researching government competition, government failure and government creation during the process of land price control, land tax control and land use control. The author puts land use structure and land use output in an integrated framework, differing from the existed research which only concentrate on one certain element.
Main conclusion and creation of this thesis could be summed up as:
First, the author makes a summary of the evolution of the intensive allocation of urban land resources in China from the perspective of institutional economics analysis. The existed research has discussed a lot about the evolution of urban land use regulations. However, this thesis renews the explorations of the attributions from the change of regulations and induced evolution of the institutional economics.
Secondly, it makes clear that middlescopic and microscopic governments are the dominant factors in the allocation of urban land resources through the analysis of the effects on land allocation of macroscopic, middlescopic and microscopic governments. The author says due attention should be paid to differentials of the government behavior at middlescopic and microscopic level in different places. During the macro adjustment, more importance should be attached to how to make the middlescopic and microscopic governments play a guiding and positive role through policy guiding and control. Most of the former research spent more time on the analysis of local governments and regarded local governments as the beneficiaries of the urban land allocation. Policy transmission mechanism and variation could be explained more objectively and more thoroughly if analyzing the three-layer governments at the same time.
Thirdly, the author analyzes low land price incited by government competition from government behavior perspective. Through the discussion of the influence on local governments' behavior of the government's current performance appraisal system and the centralization and decentralization of the financial system, this thesis points out that the competition among different places is incited by the fact that the local governments are the beneficiaries. This chapter explains how land price has been affected during the competition and how the variation of land price affects the investment promotion in different places.
Fourthly, the author analyzes the different elements' impact on the government performance in detail by means of classification and attribution of preferential policies. Former research mostly centered on one certain element and analyzed the element's effect on investment promotion from tax incentives and land price incentives perspectives respectively but they didn't conduct systematic research by combining different elements together as one integrated system based on actual situation. This thesis is the first one to analyze the tax incentives and land price incentives together and the course of simulation analysis conforms more to reality. Thus the result is conducive to examine how the existed policies affect urban land resources allocation directly and indirectly.
Fifthly, the author analyzes to which extent the government's low price strategy affects on investment promotion by referring to real evidence. Although the former research talked about the impact of the land price, they seldom applied real statistics or undertook model analysis. This thesis makes use of large amount of statistics and plot resources in 64 cities in Zhejiang Province and puts forward suggestions on the adjustment of low land price strategy based on the result of real evidence analysis.
Sixthly, the author discusses how to strengthen the role of market mechanism in guiding the utilization of land when the land property right has been defined strictly from the regulation improvement perspective. The vague part of the land use right benefits enjoyed by and the punishment to land users has caused the low efficiency of land resources allocation. This thesis suggests improving regulation control by means of market measure, especially tax measure under the situation of low efficiency of land utilization.
Seventhly, this thesis discusses how to implement the polices from the central government in different places in the situation of their own actual level of economic development under the background of land macro-regulation system from the angle of regulation creation. Through theoretical analysis, operation effectiveness and the case comparison with that in US based on "prime farmland interchange and protection" case in Zhejiang Province, the author explores the regulation creation theoretically in land implementation mechanism.
引文
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