用途管制要过滤的是市场失灵还是非国有土地的入市权--与陈锡文先生商榷如何破除城乡二元结构

What Should Zoning Aim to Filter:Market Failure or Entry Rights of Non-State Owned Land?—— A Discussion with Mr.Chen Xiwen on How to Dismantle the Urban-Rural Dual Structures

土地规划和用途管制之兴起,源于匡正以负外部性和公共用地不足为代表的市场失灵的需要,因而是市场配置的必要补充。作为中央计划的残余,现行规划和管制却违背这一初衷,禁止非国有土地入市,垄断所有土地的转用和交易,却对市场失灵随所有制的不同而差别对待。这种违反法律和市场的平等原则,随意决定土地分类比例和使用方式的行政配置,使土地的稀缺性和需求的无限性之间的矛盾日趋尖锐。显然,现行规划和管制既损害效率,又违反公平,是中国经济和社会结构严重扭曲、贫富和城乡差别居高不下的主要制度根源。除非改革现行规划和管制,使其回归辅助角色,并对所有市场失灵一视同仁,否则土地市场无以发育,结构性失衡也无以纠正。

The rise of land planning and zoning was a necessary response to the increasing need to address market failure, represented by negative externalities and lack of public space as a result of urbanization. Different from the complementary role to market allocation, as is seen Jn developed market economies, planning and zoning in China as the main remnant of its dismantled Central Planning System, has been directly allocating land by arbitrarily determining land zoning, prohibiting non-state owned land to have the equal rights to enter land market, while selectively regulating market failure, depending on the type of land ownership. Thus this system violates the principle of equality of all types of ownership in front of law and market. Consequently, this system has failed to equilibrate supply of and demand for land, and caused rampant inefficiency and widespread social injustice. Cbina has to thoroughly reform its planning and zoning system before land market can acquire necessary rooms to emerge and to help correct the serious structural distnrtinn~