中国建设用地配置中政府失灵的理论解析及其改良框架设计

摘要

研究目的:剖析中国建设用地配置中不同政府失灵的成因、影响与相互关系,探索相适宜的综合性改良框架及实现路径,为国家建设用地配置优化改革提供参考.研究方法:文献研究、逻辑分析与框架设计.研究结果:中国当前的建设用地配置存在两种政府失灵,并且这两种政府失灵涉及不同类别的政策问题,因而单一的技术性对策无法达到理想的解决效果,故需要依据不同的问题特征,设计构建综合性的政府失灵改良框架进行指导作用.研究结论:中国建设用地配置同时存在政府失灵Ⅰ与政府失灵Ⅱ.前者发生于政府内部,以央地关系失衡下建设用地计划管理机制失效为特征;后者发生于政府外部,以政府过度干预市场机制、扭曲土地资源配置为特征.对应于这两种政府失灵,本文设计涵盖6类调控工具的综合性改良框架.其中,针对政府失灵Ⅰ,主要有观念性调控、规划性调控和经济性调控3类,其可行路径包括转变形成目标相容的管控理念、构建国土空间规划体系、引入指标交易与管理平台等;针对政府失灵Ⅱ,主要有规则性调控、探索性调控和产权性调控3类,其可行路径包括健全土地市场运行规则、探索创新存量土地开发模式、构建现代土地产权体系等.%The objective of this paper is to analyze the reasons, impacts and inter-relationship of different government failures in construction land allocation, to design a comprehensive framework to explore feasible paths for improvement, and to provide proposals for optimizing construction land allocation in China. The methods including literature analysis, logistic analysis and framework design are used in the research. The findings show that there were two kinds of government failures in the current construction land allocation system in China, and each government failure was related with different policy problems. Any single technological solution cannot exert the ideal effect. Therefore, based on the features of different problems, comprehensive improvement framework should be designed to avoid government failure. It concludes that government failure I and II contemporaneously exist in construction land allocation. The former, occurring inside the government, is the mechanism failure of construction land planning management under the relation imbalance between central government and local government. The latter, occurring outside the government, features as the government excessively intervening market mechanism and distorting land allocation. In this situation, corresponding with the two government failures, the research designed an improvement framework including six kinds of regulatory tools. Value regulation, planning regulation and economic regulation are used for government failure I and the feasible paths include transforming the management thoughts with congruent goals, constructing land spatial planning system and building platform of land quota trade and management. Rule regulation, exploratory regulation and right regulation are used for government failure II and the feasible paths include completing land market rules, exploring patterns of construction land redevelopment and constructing modernized land property right system.