城乡建设用地增减挂钩政策观察与思考

Observation and Reflection on Land Policy of Linking the Increase in Land Used for Urban Construction with the Decrease in Land Used for Rural Construction

中国城乡建设用地利用目前存在着城市建设用地指标紧缺、农村建设用地低效利用和城乡建设用地"双增"严重占用耕地等问题。城乡建设用地增减挂钩政策推动下的城乡建设用地置换有望成为破解该问题的综合路径。但是,政策在执行过程中出现了错位现象,产生了较为严重的社会问题,影响了中国城乡土地资源的可持续利用。在总结了政策的提出与实施历程之后,运用文献分析与规划经验相结合的方法,提出了政策执行错位的症结与根源:①"挂钩"政策缺少科学理论支撑导致实践存在盲目性;②土地财政阻碍城乡土地市场一体化损伤农民利益;③保障体系不完善使政府行为公平性、"挂钩"质量与农村权益保障难以落实;④综合评估滞后使"挂钩"实施面临重大风险。在此基础上,"挂钩"研究的重点在于:①构建支撑城乡建设用地置换的理论与评价体系;②构建支撑城乡建设用地置换的城乡统一土地市场体系;③构建支撑城乡建设用地置换的实施保障体系;④构建支撑城乡建设用地置换的项目实施风险评估体系。

Many problems related to urban-rural construction land use in China has been emerging in recent years including lack of urban construction land, lower rural construction land use and increasing urban and rural construction land. Urban-rural construction land replacement impelled by the policy of linking the increase in land used for urban construction with the decrease in land used for rural construction is expected to be a method to deal with those above-mentioned problems. However, in the process of policy implementation, there are some malposition errors leading to severe social problems, which influence sustainable use of China＇s urban- rural construction land resources. After summarizing policy processes of putting forward and implementation, based on literature analysis and planning experiences, the paper puts forward the crucial reasons of malposition errors ： （ 1 ） The unclear scientific theory of the policy leads to the ambiguity and blindness of the practice. （2）Land-based finance mode hinders the integration of urban-rural land market and harms the interests of farmers. （3） Imperfect security system is hard to ensure the fairness of government actions, the quality of policy implementation, and the rights and interests of farmers. （4）Comprehensive assessment which lags behind the actual operation r leads to the significant risk of program implementation. It is concluded that the policy research should focus on ： （ 1 ） the construction of spatial organization theory of urban-rural construction land replacement, （2） the construction of an integrated land market system, （ 3 ） the construction of implementation and security system, and （4） the construction of risk assessment system of urban-rural construction land replacement project.