严控与激励并存:土地增减挂钩的政策脉络及地方实施

Strict Control and Incentive:Evolution of the Policy of Linking Decrease of Arable Land with Increase of Construction Land and Its Local Implementation

以土地政策变革为视角,将城镇化放在中国宏观政治经济格局中加以考量发现,近年来,土地、财政、金融"三位一体"的发展模式愈演愈烈,土地成为地方发展过程中首需解决的问题。中央政府实行以耕地保护为核心的土地严控管理,但随着工业化、城镇化的快速推进,既有体系困难重重,土地开源迫在眉睫。城乡建设用地增减挂钩政策在此背景下出台。政策的演变与地方实施凸显了中央—地方和国家—农民关系的新变化,展现出政府行为与基层社会错综复杂的关系面向。在此过程中,可以看到中国下一轮城镇化变革所面临的机遇与挑战。

By examining China's urbanization from the perspective of land policy against the macro political and economic background,we find that,the land,budget and finance 'three-in-one'development mode is increasing prevalent.During this process,land is the most pressing issue in local development.The central government carried out a system of strict land control policies centered on protecting arable land;on the other hand,with the rapid industrialization and urbanization,this system encountered numerous difficulties.As a result,opening new land resource had become an urgent need.It was in this context that the policy of linking the increase of construction land the decrease of arable land was put forth.The evolution and local implementation of this policy highlights the changes in the relations between central and local governments and between the state and farmers,showing a complex aspect of relationship between governmental behaviors and the community-level society.From this we can see the opportunities and challenges facing the next round of urbanization in China.