城市外拓和地方城镇蔓延——中国大城市空间增长中的土地管制问题及其制度分析

"Urban Expansion" and "Urban and Town Sprawl": Policy Analysis of Land-use Regulations in the Urban Growth of China's Mega-cities

研究目的:解释中国大城市空间增长中城市外拓和地方城镇蔓延同时并存的制度因素和空间后果。研究方法:产权理论框架。研究结果:交错的土地利用管制已对中国大城市的空间增长形成越来越多的约束,集中表现为相关主体对集体土地建设权的争夺。这不仅增加了土地权益流转和土地利用管制的成本,而且将进一步扭曲城市的整体空间发展。研究结论:现有的土地制度未能清晰界定谁绝对拥有集体土地的城市转化权利;交错的土地利用管制尽管有利于城市的快速增长,却在很大程度上回避了空间的规划整合问题;必须通过制度建设对土地使用权利形成一致的管制体系。

The purpose of the study is to explain the institutional factors and spatial consequence in the coexisting of urban expansion and local urban sprawl in the process of spatial expansion in the big cities in China. Methods of property theory frame in institutional economics were employed. The evidence suggests that entangling land-use regulations have caused increasing spatial constraints to mega-cities＇ growth in China. The conflicts among different policies and land-regulations at different government level joined together in the construction-use right of collective-owned land. As a result, not only the costs of the land property transfer and land-use regulations are increasing, but also the spatial development of mega-cities will be further distorted. It is concluded that the existing land system fails to define clearly who definitely owns the urban-transforming rights of the collectively-owned land. Though the interlocking land-use regulation is favorable to the fast growth of the city, it evades the issue of spatial integration of planning to a great extent. An unanimous control system concerning the land-use right must be formed through the institutional construction.