城乡建设用地增减挂钩政策“扶贫特例”的利好与隐忧——基于四川案例的思考

On the Merits of the “Exceptional Practice in Poverty Alleviation” to the Policy of Linking the Increase and Deposit for Construction Land: A Case Study in Sichuan Province

作为土地管理制度的技术性改进,建设用地增减挂钩政策提供了更多的建设用地指标,也因指标分配的高度计划性和指标落实的过度行政化而备受争议。为助力脱贫攻坚,四川省贫困县的建设用地增减挂钩政策呈现"超常规"特征,享受着定量的跨省交易指标和不限量的省内交易指标的政策红利。此时,四川省贫困县参与土地增减挂钩和土地开发整理的动机更强,也先期生产了大量的挂钩指标。然而,如若政策恢复常规,节余指标"买方"将因交易空间的缩小而断崖式减少,进而加剧贫困地区的债务负担致其返贫,或在上级政府兜底下转为上级政府负债。

As a technical improvement in land management system,the policy that links the increase of urban construction land and the deposit of rural residential land(hereinafter called‘link-up policy’)has provided more quotas for construction land.It is,however controversial for its high degree of planning in quota allocation and excessive administration in implementation.In the fight against poverty,the poor counties in Sichuan Province have adopted an"exceptional practice"to the"link-up policy",enjoying the policy dividends of fixed quotas for inter-provincial transactions and free quotas for inter-provincial transactions,which has created a great motivation for poor counties to participate in the"link-up"transactions and in land development and rehabilitation.However,if this"exceptional policy"returns to normal,the number of"buyers"with surplus quotas will fall dramatically,which will aggravate the debt burden in the poor areas,and make them fall back into poverty,or the debt burden may transfer to the higher-level government as it has to ensure a safety net.