主动改革还是被动调整?——征地制度变迁的社会共识与交易成本逻辑

Proactive Reform or Passive Adjustment? Social Consensus and Transaction Cost Logic of Land Expropriation System Change

从“摸着石头过河”到全面深化改革,中国改革模式已然嬗变。通过区分主动改革与被动调整两种变迁形态,本文将社会共识、交易成本耦合嵌入制度分析框架,以征地制度为缩影诠释了中国改革过程与改革模式演进的逻辑,并明确了新时代改革的新要求。在社会共识与交易成本的共同作用下,征地制度经历了四个阶段:1949-1978年,高度社会共识下征地制度创设与低交易成本运行阶段;1978-1998年,社会共识减弱下征地制度被动调整与高交易成本维持阶段;1998-2012年,高交易成本下征地制度改革探索与社会共识积累阶段;2012年以来,新社会共识下征地制度改革深入推进与交易成本优化阶段。由社会共识牵引并对交易成本适度敏感的“顶层设计+基层探索”的主动改革已成为新时代全面深化改革的主要方式,各级政府应创造有利于增进改革的政治共识、价值共识和舆论共识的社会环境,推动改革自身的高质量发展。

From “crossing the river by feeling the stones” to comprehensively deepening the reform,China’s reform model has undergone important changes.By differentiating proactive reform and passive adjustment,this article embeds social consensus and transaction cost into the institutional analysis framework.Taking land expropriation as an epitome,the study reveals China’s reform process and the logic of the evolution of reform models,and clarifies the new requirements of reform in a new era.The study finds that,under the joint action of social consensus and transaction cost,the land expropriation system has experienced the following stages:the establishment of land expropriation system under high social consensus and the operation of low transaction cost from 1949 to 1978;the passive adjustment of land expropriation system and maintenance of high transaction cost under weakened social consensus from 1978 to 1998;the exploration of land expropriation system reform and social consensus accumulation with high transaction cost from 1998 to 2012.Since 2012,the reform of land expropriation system under new social consensus has been further promoted and the transaction cost has been optimized.The proactive reform of “top-level design and grassroots exploration”,which is led by social consensus and moderately sensitive to transaction cost,has become the main way to comprehensively deepen reform in a new era.Governments at all levels should create a social environment conducive to enhancing the political consensus,value consensus and publicopinion consensuson reform and promote high-quality development of reform.