“三旧改造”政策背景下集体建设用地的再开发困境--基于“制度供给-制度失效”的视角

DIFFICULTIES IN REDEVELOPING COLLECTIVE-OWNED CONSTRUCTION LAND IN THE BACKGROUND OF “THREE OLDS RECONSTRUCTION” POLICY: FROM THE PERSPECTIVE OF “INSTITUTIONAL SUPPLY-INSTITUTIONAL FAILURE”

集体土地的再开发已成为珠三角城乡更新的主要类型,已有研究较少针对土地开发制度给集体建设用地再开发带来的影响进行实证分析。基于制度变迁理论,本文构建了集体建设用地"制度供给-制度失效"的分析框架,剖析番禺区集体建设用地再开发缓慢的困境。研究认为:转型期集体建设用地流转入市制度不完整,集体土地产权制度供需不均衡、农村非正式社区经济的制度约束和宗族产权认知局限,导致土地开发低效率制度的自我维系。农民集体在个体经济理性下选择了风险最小收益最高的流转出租,从而导致集体建设用地的短期次优使用路径依赖。三旧改造政策仅仅提供了集体土地再开发的有利条件,集体建设用地改造在更深层面受到集体土地流转政策、产权制度与城市产业政策的影响。

Redevelopment of collective-owned construction land has been a main type of urban renewal in Pearl River Delta Region, but there has been few researches focusing on the impact of land institution on this kind of redevelopment. Applying the theoretical framework of institutional change, this paper argues that ＂institutional supply- institutional failure＂ can be used to analyze the difficulties of redeveloping collective-owned construction land in Panyu, a suburban district in Guangzhou. The results shows formal redevelopment is stagnant while informal redevelopment is still prevailing since the introduction of three renewal policy. The institutional incompleteness of land circulation, imbalance of institutional supply and demand, and informal institutional constraints from clan and lineage have entailed institutional failure in accelerating formal redevelopment, and led to self-sustaining of inefficient land redevelopment approaches. Collectives and peasants choose land lease instead of land redevelopment and land circulation rationally, in order to avoid risks of losing land and maximize land rental income. Besides three olds reconstruction policy which provides preferential conditions, redevelopment of collective- owned land need institutional change on land circulation, property fight and urban industry policy.