转型土地管理制度变迁绩效及其制度逻辑

发布时间：2018-10-22 10:34

【摘要】：土地管理制度变迁体现着转型时期国家和地方的角色和职能界定,而不仅是土地制度变迁和制度供给问题,以中央向地方放权和收权为中心的土地管理中包含了资源配置、资本俘获和用途管制等多重治理目标,土地管理法实施以来土地权利与土地义务在国家-地方-集体与农(市)民间呈现较高程度的非对称分布。而土地管理制度变迁过程呈现着以下特征:中央对地方严格实施自上而下土地指标管控,但部分赋予地方在指标利用上探索的权利;中央赋予地方强制型垄断市场权力于并以用途管制和规划限制其权力行使;中央赋予集体部分社会与市场参与权利,但以集体产权边界和用途管制及规划限制其权利行使。这一放权与收权限制的制度格局所引发的外部性表现为:用途管制的绩效消弭、政府权力市场获利机制的建立与集体福利消散、社会资本力量与社会参与合作治理不足。由土地权利与土地义务配置失衡所带来财产与风险(不稳定)的分配失衡则是这种渐进式的治理朝向改革的制度成本。土地管理的进一步制度变迁将遵循既有的这种模式渐进式进行。
[Abstract]:The change of land management system embodies the definition of national and local roles and functions in the transitional period, not only the changes of land system and the supply of land system, but also the allocation of resources in the land management centered on the centralization of power to local authorities. Since the implementation of the Land Management Law, land rights and obligations have been distributed unevenly in the state-local-collective and rural (municipal) areas. The change of land management system shows the following characteristics: the central government strictly implements the top-down land index control to the local government, but partly endows the local authorities with the right to explore the use of the indicators; The central government gives local compulsory monopoly market power and limits its exercise by means of use control and planning; the central government grants collective part of society and market participation right, but limits its exercise by collective property rights boundary and use control and planning. The externalities caused by this institutional pattern of decentralization and restriction are as follows: the performance of use control is eliminated, the profit mechanism of government power market is established and collective welfare dissipates, and the social capital strength and social participation in cooperative governance are insufficient. The imbalance in the distribution of property and risk (unstable) caused by the imbalance of land rights and land obligations is the institutional cost of this progressive governance towards reform. Further institutional changes in land management will follow the existing model of gradual progress.
【作者单位】：河南财经政法大学工程管理与房地产学院房地产经营管理系;
【分类号】：F301.1

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