城乡建设用地增减挂钩:政策性质及实践逻辑

Urban and Rural Construction Land Reallocation:Policy Nature and Practice Logic

学界对城乡建设用地增减挂钩政策存在误解。土地指标的价格不是凭空而来,而是与近郊土地的增值收益有关。增减挂钩政策的出台与国家偏紧的建设用地指标供给策略有关,它是彻底的政府再分配,不是市场行为。城乡建设用地增减挂钩政策实践中存在的问题,与央地目标的博弈,地方指标的分配方式,官民利益的互动等有关,不仅仅是政策设计有漏洞、产权改革不彻底。城乡建设用地增减挂钩政策的性质和实践逻辑决定了其很难实现"保统筹、保发展、保红线"的目标。要完善城乡建设用地增减挂钩政策,须直面农民的公共品诉求问题。

There exists an academia misunderstanding regarding urban and rural construction land reallocation policies. Land index price does not come just out of thin air,but is related to the suburban land value-added income distribution. Urban and rural construction land reallocation policy's introduction is related with the national tight supply of construction land index strategy,and it's not a market behavior,but purely a redistribution behavior of the government. Problems in the practice of urban and rural construction land reallocation policy are related with the goals of the central and local governmental games,the local index distribution,interactive officials and the public interest and so on. It is caused not just by the policy design that has loop holes,or by the property right reform that is not complete. Urban and rural construction land reallocation policy's nature and practical logic lead to the situation that it's difficult to achieve the goal of 'insurance plan as a whole,insurance development,and guaranteeing the red line'. If urban and rural construction land reallocation policy is to be improved,it must face the problem of public goods demand of farmers.