淮安市土地储备调控机制研究

发布时间：2018-03-10 07:33

本文选题：土地储备　切入点：土地立法　出处：《南京农业大学》2013年硕士论文　论文类型：学位论文

【摘要】：城市土地储备运行机制作为我国土地制度的一个创新,是城市政府垄断一级土地市场获取土地收益的重要手段。在我国现行法律制度下,从理论和实践方面研究土地储备运行机制存在的制度缺陷并加以完善,对于城市政府进一步改进制度设计,使土地储备运行机制更好地发展以达到政策目标具有重要意义。本文着眼于土地储备运行机制的主要问题,理论分析与实例研究相结合,提出了自己的看法与政策建议。淮安为解决土地市场交易不规范,土地收益分配不合理的问题,改善城市结构布局,2002年淮安市实施土地储备运行机制,成立了第一家土地储备机构。借鉴其它地市经验,淮安市土地储备政策主要包括统一收购政策、统一储备政策、统一供应政策、市场运作政策、资金集中政策六项政策,在优化城市规划和增加土地收益方面初见成效。淮安市土地储备中心隶属于土地管理部门,土地储备工作协调效率有待提高,从法律依据来说,淮安市同样要解决立法和制度建设问题。从收购地价和运行成本来分析,补偿费是土地价格的重要组成,虽然淮安市发布了基准地价,但主要是按需定价,土地的权属在地价中未能体现。淮安市政府仅在土地储备运行机制启动时注入1000万元,其余所需资金全部来源银行贷款,与理论分析结论一致,单一的融资渠道加大了风险和成本。实施土地储备也造成淮安市的地价上扬。在进行淮安市与杭州、南通、上海等地市的比较时,笔者发现法律依据、地价上扬、收购价格认识模糊属于共性问题,杭州的政府主体地位相对突出,运行效果较好。上海由于资金需求小,金融风险问题不明显。根据分析可知,在我国目前的土地储备运行机制中,法律缺位、政府主体弱化、收购价格认识模糊、金融风险过大的确是急待解决的问题,针对分析出的原因,本文给出的政策建议包括：在与土地储备相关的法律,如《土地管理法》、《城市规划法》、《房地产管理法》等法律法规中增加适应内容,建立健全土地储备的法律体系；科学界定土地使用权,从土地的权属关系出发明确对原土地使用者补偿的性质、补偿依据、如何补偿,参照国际惯例,考虑经济的整体发展,合理分配土地收益；探索一条社会化的资金筹措机制,采用政府拨款、银行贷款、土地收益、发行土地债券和城市土地基金、资产支持证券化等方式拓宽融资渠道,建立风险评估体系有效降低土地储备的风险和成本；加强政府之间的协作,使土地收购储备与整个城市的经济发展计划、用地计划、旧城改造计划、房地产开发计划、资金筹措计划等有机结合起来,建立详细的目标考核体系,把土地储备运作中的各个方面直接分解到各个部门,以政府的意志来统一各个政府相关部门的思想和行动,降低协作成本,减少土地储备中的寻租和部门执行偏差。
[Abstract]:As an innovation of our country's land system, the operation mechanism of urban land reserve is an important means for the urban government to monopolize the land market to obtain land income. From the aspects of theory and practice, this paper studies the institutional defects of the land reserve operation mechanism and improves the system design for the urban government. It is of great significance to make the operational mechanism of land reserve develop better in order to achieve the policy objective. This paper focuses on the main problems of the operation mechanism of land reserve, and combines theoretical analysis with case study. In 2002, Huai'an put forward its own views and policy suggestions. In order to solve the problems of non-standard land market transaction, unreasonable land income distribution, and improve the layout of urban structure, Huaian City implemented the land reserve operation mechanism in 2002. The first land reserve institution was established. Drawing on the experience of other cities, the land reserve policy of Huai'an mainly includes six policies: unified acquisition policy, unified reserve policy, unified supply policy, market operation policy, and fund concentration policy. The land reserve center of Huaian City is subordinate to the land management department, and the coordination efficiency of the land reserve work needs to be improved. Huai'an also needs to solve the problems of legislative and institutional construction. From the perspective of purchase land prices and operating costs, compensation fees are an important component of land prices. Although Huaian City has issued the benchmark land price, it is mainly pricing on demand. The ownership of land is not reflected in the land price. The Huai'an Municipal Government only injected 10 million yuan into the land reserve operation mechanism when the operation mechanism was started, and the rest of the funds needed all came from bank loans, which is consistent with the conclusion of the theoretical analysis. A single financing channel increases the risks and costs. The implementation of land reserves also causes the price of land in Huai'an to rise. When comparing Huai'an with Hangzhou, Nantong and Shanghai, the author found the legal basis for the increase in land prices. The vague understanding of purchase price is a common problem. Hangzhou's government is relatively prominent in its main position, and its operation effect is better. Due to its small demand for funds, the financial risk problem is not obvious in Shanghai. According to the analysis, it can be seen that, In the current land reserve operation mechanism of our country, the legal vacancy, the weakening of the government body, the vague understanding of the purchase price and the excessive financial risk are the urgent problems to be solved. The policy suggestions in this paper include: to establish and improve the legal system of land reserve in the laws and regulations related to land reserve, such as the Land Management Law, the Urban Planning Law, the Real Estate Management Law and other laws and regulations; Scientific definition of land use right, starting from the land ownership relationship to clarify the original land users compensation nature, compensation basis, how to compensate, referring to international practice, consider the overall economic development, reasonable distribution of land income; To explore a socialized financing mechanism and broaden the financing channels by means of government grants, bank loans, land proceeds, the issuance of land bonds and urban land funds, and asset-backed securitization. Establish a risk assessment system to effectively reduce the risks and costs of land reserves, strengthen the collaboration between the governments, and make land acquisition and reserves work with the entire city's economic development plans, land use plans, old city reconstruction plans, and real estate development plans, By organically combining the fund raising plan and so on, establishing a detailed target assessment system, directly decomposing all aspects of the operation of the land reserve into various departments, and unifying the ideas and actions of the relevant government departments with the will of the government. Reduce the cost of collaboration, reduce the land reserve in the rent-seeking and departmental implementation deviation.
【学位授予单位】：南京农业大学
【学位级别】：硕士
【学位授予年份】：2013
【分类号】：F301

【相似文献】