城乡建设用地增减挂钩政策演变及其特征研究

Study on the Evolution and Characteristics of Linkage Policy of Increase and Decrease of Urban and Rural Construction Land

城乡建设用地增减挂钩是一项独具中国特色的耕地保护政策,随基本国情和发展战略的变化不断演变,实现保护耕地目标的同时,在脱贫攻坚、乡村振兴等诸多领域发挥重要作用。对国家颁布的增减挂钩政策文件进行梳理和分析发现:增减挂钩政策发展历程可分为政策筹划(1999—2004年)、政策试点(2005—2007年)、政策出台(2008年)、政策完善(2009—2014年)和政策转型(2015年至今)5个阶段;历经了结余指标封闭管理到省域内调剂再到跨省域交易3次重大制度变迁;从政策演变特征来看,一是增减挂钩政策的发展呈现出完整的生命周期;二是切实保护耕地是贯穿于增减挂钩政策的主线;三是立足国情创新管理方式充分发挥政策效益;四是由政策单一指令向政策配套发展的趋势演进。

The linkage between the increase and decrease of urban and rural construction land is a cultivated land protection policy with unique Chinese characteristics.With the change of basic national conditions and development strategies,it plays an important role in many fields such as poverty alleviation and rural revitalization while achieving the goal of protecting cultivated land.By combing and analyzing the increase or decrease linkage policy documents issued by the state,it is found that the development process of the policy can be divided into five stages:policy planning(1999-2004),policy pilot(2005-2007),policy introduction(2008),policy improvement(2009-2014)and policy transformation(2015-present);it has experienced three major institutional changes from closed management of balance indicators to intra-provincial transfer and then to cross-provincial transactions;from the perspective of policy evolution characteristics,firstly,the development of the linkage policy of increase and decrease shows a complete life cycle;secondly,the effective protection of cultivated land is the main line running through the linkage policy of increase and decrease;thirdly,it is giving full play to policy benefits by innovating management methods based on national conditions;fourthly,the evolution trend is from single policy instruction to policy supporting development.