土地利用计划考核体系与激励机制

Appraisal System and Incentive Mechanism of the Land Use-quota Management

研究目的:在中国现有土地产权和行政体系下,探寻完善土地利用计划管理的思路与方法。研究方法:逻辑分析法,综合评价法,比较研究法。研究结果:(1)2007—2010年不同省(市、区)土地利用计划管理评价平均分值分别为64.16、64.90、61.54、62.63,地区间标准差为5.74、5.85、7.47、8.30,土地计划管理的总体水平不高、地区差异较大且呈扩大趋势;(2)Ⅱ类、Ⅲ类地区土地利用计划管理评价分值较高,Ⅰ类、Ⅳ类地区分值较低;(3)经济发达地区土地利用计划管理应重视耕地保护、土地供应方式、土地收益分配等问题,经济相对落后地区应重视建设用地规模控制、土地集约利用、存量建设用地开发、违法用地控制等问题。研究结论:(1)应融合土地发展权计划内和计划外双轨配置,建立土地利用计划考核制度和激励机制,将计划考核结果与计划内指标奖惩、计划外指标竞争分配相挂钩,提升土地宏观调控绩效;(2)选择建设用地规模控制、耕地保护、土地集约利用、土地供应管理、土地收益分配(民生保障)、土地行政执法等因素,构建土地利用计划考核指标体系。

The purpose of this study is to find a way to improve the performance of annual land use-quota management in the context of current land property rights and administration systems in China.Methods of logical analysis,comprehensive appraisement and comparison study are employed in the paper.Results show that 1）The average evaluation scores of land use-quota management in four provincial regions were 64.16,64.90,61.54,62.63,respectively,between 2007 and 2010,which were lower than that of expected.Standard errors of the scores were 5.74,5.85,7.47,8.30,respectively,implying that there was a big and growing difference between regions.2）Appraisal scores of the most developed areas and less developed areas were less than that of two medially-developed areas.3）Developed areas should strengthen arable land reservation,urban land supply management and equality of land revenue distribution to improve land use-quota management.Less developed areas should pay more attention to control of constructed land area,land use intensity,redevelopment of land in stock and control of illegal land use activities.It is concluded that 1）A formal appraisal system and incentive mechanism that links appraisal score to land development rights allocation in-plan and explan should be adopted to improve the performance of land use quota with dual allocation tracks of land development rights.2）An index system for land use plan performance appraisal would reflect the effects on constructed land area control,arable land reservation,land use intensity and efficiency,urban land supply,land revenue distribution and land law enforcement.