论“两规”冲突的体制根源——兼论地方政府“圈地”的内在逻辑

INSTITUTIONAL REASONS OF CONFLICTS BETWEEN MASTER PLAN AND LAND USE PLAN:CAUSES OF LAND EXPROPRIATION OF LOCAL GOVERNMENT

"两规"都是对空间资源及其隐喻利益的一次再分配过程,"两规"协调本质是利益协调,技术理性不是"两规"协调的根本出路。城镇建设用地规模上的冲突是"两规"间矛盾的焦点,如果不能有效遏制地方政府圈地行为,"两规"矛盾不会被真正化解。地方政府圈地是折射上下级政府关系、政府和农民关系的一面镜子,其中,经济增长和财政收入为地方政府圈地提供内在激励,而土地制度内在缺陷和自上而下监控失效是地方政府圈地的两大外在诱因。遏制地方政府圈地,化解"两规"矛盾的根本在于体制机制创新。目前,"两规"协调亟需在上下级政府间、政府与农民间构建通达程序正义的利益博弈机制。

Urban master plan and comprehensive land use plan （＂the two plans＂ for short） are in essence the spatial resources distribution that also signifies interest distribution. The technical rationality isn＇t the way to coordinate ＂the two plans＂. Land scale of cities and towns is the main contradiction between ＂the two plans＂. If the phenomenon of excessive land expropriation by local governments cannot be hold back, the problems in the coordination of ＂the two plans＂ will not be solved. The excessive land expropriation has reflected the relations of central government with local governments, and government with peasants. The maximization of economic growth and tax revenue have driven local governments to expropriate agricultural lands, while the defects of land acquisition system and the failure of local governments to be monitored by central government are two important outside factors of its aggravation. The basic way to restrain land expropriation and coordinate ＂the two plans＂ lies on the institutional innovation. Currently, to coordinate ＂the two plans＂, it is urgent to construct an interest coordination mecha- nism among the central government, local governments and peasants based on procedural justice of public policy.