地方政府土地政策试点实施的动力与机制——基于B市集体土地建租赁住房试点的案例分析

Driving Forces and Mechanism of Pilot Implementation of Land Policy by Local Government:A Case Study on the Pilot Policy of Rental Housing Construction on Collective-owned Land in B City

研究目的:分析中央主导的“设计试验”中地方政府土地政策试点实施的关键动力与治理机制,为完善土地政策试点运作机制提供参考。研究方法:理论分析、案例分析和过程追踪法。研究结果:(1)在中央加强顶层设计的试点模式下,地方自主探索的创新空间边界受到试点启动和实施等阶段央地多重互动的影响;(2)地方党政“一把手”的个人专长和信息优势有助于其清晰认识创新边界与作用,使其高度重视自身熟悉且利于实现政绩生产的试点领域,为地方推进试点提供关键动力;(3)在党政领导高位推动下,资源拓展、组织协调、政策调适与过程控制等机制构成地方政府解决试点实施困境、实现政策创新的关键机制。研究结论:为推动顶层设计与基层探索良性互动,土地政策试点需处理好央—地、政府—民众两对关系,健全对地方的激励约束机制,提高地方领导对试点的正向激励感知,并从资源、组织、政策和权力运作等维度完善高位推动下四位一体的治理机制。

The purpose of study is to analyze the key driving forces and governance mechanism of pilot implementation of land policy by local government towards the designed policy experimentation led by the central government.The research methods employed include theoretical analysis,case analysis and process-tracing.The results show that:1)under the pilot mode of strengthening top-level design by the central government,the boundaries of innovation space for local government are affected by multiple interactions between central and local governments during the initiation and implementation stage.2)The personal expertise and information advantage of local top leaders help them clearly understand the boundaries and functions of innovation,and accordingly make them attach great importance to pilot areas that they are familiar with and able to obtain achievements,which provides a key impetus for the local government to promote the pilot policy.3)Under the authoritative support of local top leader,resource expansion,organization coordination,policy adjustment and process control formulate the key mechanism for local government to solve implementation dilemma and achieve policy innovation.In conclusion,to promote positive interaction between top-level design and grassroots exploration,both central-local government relationship and government-public relationship should be handled well for pilot implementation of land policy.Incentive and restraint mechanism should be improved to enhance local top leaders’positive incentive perception.Moreover,the four-in-one governance mechanism under the authoritative support of local top leaders should be established from the dimensions of resources,organization,policy and power operation.