制度变迁视域下土地储备治理体系的优化逻辑

Optimization logic of land reserve management system from the perspective of institutional change

土地储备治理体系是国家加强全民所有土地资产管理、优化土地资产配置、增强土地市场有效供给的重要基础。随着我国城市化进程的加快,土地发展权利益分配、权利归属等问题凸显,其中因土地储备治理体系滞后而带来的问题较为常见。以制度变迁为视域,梳理土地储备体系的法理考察与实践演进,探讨土地储备治理体系的优化逻辑和具体路径,将为高效配置土地资源、提升城市品质、促进经济社会发展提供新动能、新模式和新路径,具有重要的理论和现实意义。本研究以重庆为例,从土地储备治理体系的现状出发,对近年来土地储备总体经营情况、重点功能片区土地经营效益、土地储备治理体系展开实证分析,实践表明土地储备治理体系土地储备融资渠道得到拓宽,有力支持了当地经济建设,土地储备财务风险得到控制,土地储备监管更为便捷,土地储备促进了重大项目工程建设的推进,土地储备中心加强了一级市场调控,建立储备土地信息库,科学编制储备计划,加快推进前期开发,统筹安排各类资金等工作。不足之处在于,土地储备机构职能权限界限不清,储备整治工作资金保障机制不太健全,国土空间规划引领土地储备整治工作的机制尚未建立,土地储备前期开发、系统性风险问题未得到足够重视。基于理论和实证分析,研究认为应以土地确权带动土地流转,以土地流转激活土地储备,强化土地价值管理,增强土地附加功能,健全土地储备体系有助于有效利用未开发的土地资源、减少土地资源的闲置和流失、保障土地资源发展权。进而从宏观上提出以土地确权带动农村土地流转,以土地流转激活土地储备不断创新的改革路径;从微观上提出应理顺土地储备组织治理体系、优化土地储备资金融资体系、完善土地增值收益分配体系、优化城市空间治理体系、加强土地储备系统性风险应对,进一步规制宏观经济下行、土地价值下跌等系统性风险等方面进行完善的具体路径。

The land reserve management system is an important foundation for the state to strengthen the management of land assets owned by all people,optimize the allocation of land assets,and enhance the effective supply of land market.With the accelerated urbanization process in China,the problems of benefit distribution and rights attribution of land development rights have been highlighted,among which the problems caused by the lagging land reserve management system are more common.Taking institutional changes as the perspective,the study compares the jurisprudential investigation and practical evolution of the land reserve system,and explores the optimization logic and specific paths of the land reserve management system,which will provide new dynamics,new models and new paths for efficient allocation of land resources,improving urban quality and promoting economic and social development,with important theoretical and practical significance.Taking Chongqing as an example,this study starts from the current situation of the land reserve management system and carries out empirical analysis on the overall operation of land reserve,land operation efficiency of key functional areas,and land reserve management system in recent years.The practice shows that the land reserve management system has broadened land reserve financing channels,strongly supported local economic construction,controlled the financial risks of land reserve,and made the supervision of land reserve more convenient.Land reserve has promoted the construction of major projects,and the land reserve center has strengthened the primary market regulation and control,established the reserve land information database,scientifically prepared the reserve plan,accelerated the preliminary development,and coordinated the arrangement of various funds.The shortcomings are that the boundaries of functional authority of land reserve institutions are unclear,the mechanism of guaranteeing funds for reserve and remediation work is not sound,the mechanism of land spatial planning leading land reserve and remediation work has not been established,and the problems of pre-development of land reserve and systemic risks have not been paid enough attention.Based on theoretical and empirical analysis,the study concludes that land transfer should be driven by land entitling,land reserve should be activated by land transfer,land value management should be strengthened,land additional functions should be enhanced,and a sound land reserve system can help to effectively utilize undeveloped land resources,reduce idleness and loss of land resources,and guarantee the right to development of land resources.From a macro perspective,the reform path of promoting rural land transfer with land rights and activating land reserve innovation with land transfer is proposed.From a micro perspective,it is proposed that the organizational management system of land reserve should be rationalized,the financing system of land reserve capital should be optimized,the distribution system of land value-added revenue should be improved,the urban spatial governance system should be optimized,and the systemic risk response of land reserve should be strengthened to further regulate systemic risks such as macroeconomic downturn and land value decline.