城乡建设用地增减挂钩政策与实践模式的演进——基于成都市的考察

“Linkage Between Urban-land Taking and Rural-land Giving” (LUTRG) policy and its evolution of the mode of operation: Based on the investigation in Chengdu

城乡建设用地增减挂钩是一种特殊形式的土地整理工作,是地方政府的财政定点再分配行为。基于成都市的调查分析表明,其实施主要经历了基于财政担保贷款的政府独立运作模式、项目"外包"与"市场化"运作模式、基于开发商"持证准用"运作模式的演进。这三种模式虽然能吸引地方政府和开发商积极参与增减挂钩项目,促进地方经济发展,但仍会不同程度地给地方政府带来财政压力,不可能将增减挂钩项目惠及全部或大部分村庄,带来新的不公平和权力寻租等问题。

The LUTRG policy is a special form of land consolidation and a fimaacial redistribution behavior of local governments. Surveys and analysis about Chengdu show that the implementation mode in Chengdu experienced three modes, from the government-led model to the enterprise participation model and then to the land ticket “use license” model. Although these three models can attract the government and enterprises to participate in the LUTRG project actively and then promote the development of the local economy, they will increase the financial burden of the local government to varying degrees, and will not be able to beneft all or most of the villages, thus leading to new problems such as unfairness and power rent-seeking.