从“土地征用”到“土地财政”——我国征地制度的改革历程及对策建议

From the “Land Acquisition”to “Land Finance”Based on Land Reform Process and Recommendation of Countermeasures in China

我国计划经济时代没有土地市场和土地价格,国家为了工业化发展和经济建设的需要采取征用的办法把农民和城镇的土地收归国有,并采取相应的安置补偿措施保障失地农民的基本生活。在市场经济条件下政府由土地使用者变成土地经营者,地方政府从征地卖地中获得大量土地出让金,与土地相关的各项收入逐渐成为地方政府的"第二财政"。在土地财政模式下政府垄断一级市场的土地价格,各级地方政府为了获利于土地总是想办法多征地并压低征地补偿标准,出现强制征地、违规用地、滥占耕地等现象。因此征地制度改革的方向是政府退出土地经营者的角色,让市场配置土地资源,并通过深化财税改革,增加地方政府财政来源的渠道,减少地方政府对土地财政的依赖。

In the planned economy era, China did not have land market and land prices, for the country nationalized the land of farmers and towns for the needs of economic development and industrialization, and took appropriate measures to ensure the basic livelihood of resettlement compensation landless peasants. In the market economy the government becomes operators of land from land users, so the local governments get lots of land transfer income. The land-related revenue is becoming the local governments＇ second revenue. In the model of land finance the government monopoly the land prices in the primary market, local governments at all levels always find a way to profit from the land such as more land requisition, downing compensation standards, compulsory land acquisition, illegal land of farmland and other phenomena. Therefore, the direction of land requisition system reform is that government withdraws the land management role, the market allocation of land resources, and by deepening fiscal reforms to increase the channels of local government finance sources to reduce dependence on the land of local government finances.