中国的土地管理出了什么问题

The Dilemma of the Land Management System of China

1998年之后,中国大陆建立了号称"世界上最严格的土地管理制度",并希望籍此制度实现耕地保护、国有土地资本化和城市化之间的平衡。然而,对耕地流失的恐惧和对国有土地资本化的欣喜蒙蔽了人们的双眼,制度决策者希望在相互冲突的目标之间找到平衡,却将制度的基点建立在指标式的计划管理基础之上,不但无法实现制度设计所希望达到的目标,也让公民与社会付出了巨大的代价。今天的人们似乎更多地将土地管理、耕地保护战略的失败和地方土地财政的兴起归因于1994年的分税制改革。然而,现行土地管理制度本身的缺陷对上述问题的出现和恶化负有同等重要的责任。本文将以"国有土地—集体土地"为基本的讨论框架,从"中央—地方"和"城市化—耕地保护"这两个视角来总结过去30年间中国土地管理的经验和教训,进而反思当下中国的土地制度。

In 1998,China established a system namely'the most restrict land management institution in the world'to protect the agriculture land,capitalization of national land and urbanization.However,the gap between the ideal and the reality is difficult to fill.Legislator cannot find the balance point,thus(1)we are losing the agriculture land continuously;(2) the governments(in particular local governments) make huge money from capitalization of national public land while the land and house price become improper high;(3) the disordered urban sprawl cannot be controlled yet.most of observers believe that the reason of the dilemma of the land management system of China is the reform of the system of taxation distribution between 'Central-Local'Government in 1994.However,it is just partly true answer,because the defect of the land management system is ignored.With the framework of the'Central-Local Government Relationship'and'Urbanization-Cultivate Land Protection',the paper will review the experiences and lessons of land management system of China in last 30 years.