20世纪90年代中后期以来的征地制度变迁--兼论1998年《土地管理法》修订的影响

Institutional Changes of Land Expropriation System in China since the Mid-Late 1990s:On the Impact of Amendments to the Land Administration Law in 1998

征地问题及冲突是影响中国经济增长和社会稳定的重要因素。本文探讨20世纪90年代中后期以来中国征地制度变迁的性质和特征,并应用中国人民大学17省农村土地调查数据进行实证分析。研究表明:征地冲突激化的一个制度根源是国家层面的立法和政策变化,特别是1998年《土地管理法》的修订。这一中央层面的正式规则变化不仅未能改变传统征地制度"高强制、低补偿"的基本特征,又明确扩大了征地的合法范围,征地程序上将协议征地转为公告征地,以及采用争议不影响征地方案实施的纠纷解决机制等,进一步限制了农民的土地财产权利。因此,进行征地制度改革,明确规定只有公共利益才可征地,坚持"公平公正补偿",并允许集体土地按规划入市,有利于真正推进乡村振兴、城乡融合以及经济发展方式的根本转变。

Land expropriation and its related conflicts are vital factors affecting economic growth and social stability in China. In this paper, we discussed the nature and characteristics of institutional changes of land expropriation system in China since the mid-late 1990 s.We found that the key institutional root of pervasive land expropriation conflicts lies in the shift of central legislation and policy,especially the revision of the Land Administration Law in 1998. After the revision of the Land Administration Law,concerning the scope, procedure, and dispute resolution of land expropriation, land property rights of the farmers were put at a less secure status. Empirical data from four rounds of China Rural Land Rights Survey covering 17 major agricultural provinces on the practice of land expropriation by Renmin University of China in 2005, 2008, 2010, and 2011 verified these findings. Finally, a series of policy implications were suggested to improve land expropriation system in China.