非农化村庄整体改造中的把持陷阱与规划应对:以珠三角地区为例

发布时间：2018-05-09 19:24

本文选题：三旧改造 + 土地产权制度　；参考：《国际城市规划》2016年05期

【摘要】：以集体建设用地为核心的存量改造在广东推行已逾七年。检讨相关政策实施的文献,发现利益各方围绕土地增值收益的博弈是推动改造和塑造结果的关键。同时,规划调控弱、开发强度过高和公益设施配套不足极为普遍。然而,从微观层面对改造失控背后制度性逻辑的研究匮乏。此外,已有研究多视开发商逐利、政府寻租以及两者的合谋为改造失控的主因,而对土地持有者如农村集体的角色鲜有涉及。本文结合制度变迁的理论和村庄改造案例的深度实证探讨制度转型、利益各方权利关系演化和博弈的结果。研究发现旧改政策强化了村集体的地权,但对土地增值收益的再分配未充分界定。在不确定的制度环境下,积极推动改造的政府先期投入以保障集体收益,而村集体则依托现实的土地占有占据博弈的主动,不断"把持"政府,争夺土地收益,最终使政府在维持社会公益上逐步妥协,危及空间品质和社会公平,与包容性发展渐行渐远。旧改应力求政府统筹,完善利益分配和规划制度。
[Abstract]:Collective construction land as the core of the stock transformation in Guangdong has been implemented for more than seven years. Reviewing the relevant policy implementation literature, it is found that the game around the land value-added income is the key to promote the transformation and shape the results. At the same time, the planning control is weak, the development intensity is too high and the public welfare facilities are insufficient. However, the study of institutional logic behind the transformation from the micro level is scarce. In addition, there are many studies on developers seeking profits, government rent-seeking and the collusion of the two as the main reason for the transformation out of control, but the role of landholders such as rural collectives is rarely involved. Based on the theory of institutional change and the case of village reconstruction, this paper discusses the institutional transformation, the evolution of the rights relationship between the parties concerned and the result of the game. The study found that the old reform policy strengthened the land ownership of the village collective, but the redistribution of the land value-added income was not fully defined. In the uncertain system environment, the government actively promotes the transformation of the government to protect the collective income, while the village collective relies on the active of the real land occupation game, and constantly "controls" the government to compete for land income. Finally, the government compromises gradually on the maintenance of social welfare, endangers the space quality and social equity, and is far away from inclusive development. The old reform should strive for the government as a whole and perfect the benefit distribution and planning system.
【作者单位】：武汉大学城市设计学院;中山大学地理科学与规划学院;广州中大城乡规划设计研究院有限公司;
【基金】：中央高校基本科研业务费专项资金资助项目(2042015kf0019) 国家自然科学基金项目(41601153)
【分类号】：F321.1;TU982.29

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