重庆市两类城乡建设用地增减挂钩模式的比较

Comparison of the Two Modes of the Linkage Between Urban Construction Land Increase and Rural Residential Land Decrease in Chongqing

研究目的:通过对比重庆市指标周转模式和地票交易模式,分析两种模式的共性及差异,以期更深入地了解重庆市城乡建设用地增减挂钩政策的实施情况,并为全国其他试点区域进行模式创新提供参考。研究方法:文献研究和对比分析法。研究结果:两种"挂钩"模式的设计机理相同,但具体运作形式和实施效果却存在显著差异。研究结论:两种模式是在重庆市积极推行城乡建设用地增减挂钩政策的背景下出现的,并均围绕着"挂钩"指标的产生、使用和农民补偿三个环节进行模式设计。在指标周转模式中,政府主导整个模式的运作,是一种趋于层级制的治理结构,而在地票交易模式中,市场则起主导作用,是一种趋于市场制的治理结构。指标周转模式中,"挂钩"指标具有较高的利用效率,但伴随着较高的耕地保护风险并容易造成农民权益受损,而地票交易模式则在耕地保护和农民权益保障方面具有更好的表现,但受限于城市规划和土地规划,"挂钩"指标利用效率较低。

The objective of this paper is to understand the implementation of the linkage policy in Chongqing by comparing the similarities and differences between the Index-Turnover mode and the Land Ticket Trading mode and to provide references for the other pilot areas in China. Literature analysis and comparative analysis methods are used in this research. Results show that these two modes have the same design mechanisms, but the detailed operation form and the implementation effects are significantly different. This paper concludes that the Index-Turnover mode and the Land Ticket Trading mode both appeared under the background of the active implementation of the linkage policy in Chongqing. These two modes both include three steps, the formation of linkage index, the use of linkage index and the compensation of farmers. Overall, the Index-Turnover mode that is driven by the government is a hierarchical type governance structure, while the land ticket-trading mode that is mainly driven by the market is a market type governance structure. The advantage of the Index-Turnover mode is the high utilization efficiency of the linkage index, while the disadvantages are the high risks of protecting cultivated land as weU as farmers＇ land rights and benefits. On the contrary, the Land Ticket Trading mode has better performance in the protection of cultivated land and farmers＇ land rights and benefits, but limited to urban planning and land use planning, the linkage index has low utilization efficiency.