城乡建设用地增减挂钩制度的演进及机理——基于制度变迁理论的分析

The Evolution and Its Mechanism of Linkage between Urban-construction-land Taking and Ruralconstruction-land Giving(LUTRG) Institution——An Analysis based on Institution Change Theory

城乡建设用地增减挂钩是我国进行耕地保护和优化建设用地空间布局的重要制度,其自发端至今已有十余年历史,探究该制度的演进过程及内在机理对制度的完善有重要意义。本文通过对制度文件的梳理和分析,将增减挂钩制度的演进分为发端、初步试点、正式出台和调整完善四个阶段。在这四个阶段中,增减挂钩制度经历了两次较大的变迁,分别是由耕地占补平衡衍生出城乡建设用地增减挂钩和从严禁增减挂钩指标跨行政区域流转到部分允许。本文运用制度变迁理论对两次制度变迁的机理进行了分析,认为第二次制度变迁尚未形成新的制度均衡,探索增减挂钩节余指标在更大范围内交易流转是形成制度均衡的关键。

LUTRG is an important institution to protect cultivated land and optimize the spatial layout of construction land.It has been more than ten years since LUTRG institution began to pilot,so it is of great significance to explore the evolution process and mechanism.Through analyzing official documents,this paper divides the evolution of LUTRG institution into four stages:originating,initial piloting,formal introduction and adjustment and improvement.In these four stages,LUTRG institution has undergone two major changes.The first change is that LUTRG institution derives from Cultivated Land Requisition-compensation Balance institution,and the second change is that the transition of surplus index of LUTRG is approved in some poor areas.This paper analyzes the mechanism of the two institutional changes by using Institution Change Theory.It is concluded the second institutional change has not yet formed a new institutional equilibrium.Exploring the transaction of surplus index of LUTRG in a larger scope is the key to form a new institutional equilibrium.