工业用地市场化配置改革的制度变迁逻辑——基于“主体互动-制度共演”框架的分析

The Institutional Change Logic in the Market-Oriented Allocation Reform of Industrial Land:Based on the Framework of"Actor Interaction and Institution Co-Evolution"

工业用地配置是当前要素市场化改革的重要内容。历经40余年的长期改革,市场在其中发挥的作用仍需要进一步加强,如何理解工业用地市场化配置改革的内在逻辑。通过纳入多类行为主体和关联制度,论文构建了“主体互动-制度共演”的理论框架,围绕改革开放以来工业用地市场化配置的改革历程和逻辑展开制度分析。研究发现,中央政府、地方政府和工业企业围绕工业用地配置制度充分互动,分别以制度供给、制度创新和制度需求的形式,在工业用地市场化配置的初步探索、发展调整和深化改革阶段主导了制度演变方向。土地产权、财政管理和政绩考核等关联制度安排也在工业用地配置制度演化过程中发挥了重要作用。研究认为,未来工业用地配置会以市场主体向上传递制度需求的互动形式深化改革,故应建立制度需求的有效反馈机制,服务企业发展和产业转型,重点优化土地利用计划管理和用途管制制度,加快培育土地二级市场和城乡统一的建设用地市场体系。

Industrial land allocation is an important part of factor marketization reform.However,after more than forty years,the market's role needs to be strengthened further.What is the logic behind the market-oriented reform of industrial land?By including multiple actors and related institutions,this paper constructs a"actor interaction and institution co-evolution"framework to explain the process and logic of the market-oriented allocation reform of industrial land since China's reform and opening-up in the late 1970's.The results show that the central government,local governments,and enterprises have fully interacted with the industrial land allocation institution and dominated the evolution direction in the form of institutional supply,institutional innovation and institutional demand at all three stages:preliminary exploration,development,and adjustment and deepening reform.Some related institutions have also deeply affected the industrial land allocation institution,such as land property rights,financial management,and political assessment systems.As a result,future industrial land allocation will be carried out in the interactive form of market players transmitting system demands.Therefore,an effective feedback mechanism for system demand should be established that serves both enterprise development and industrial transformation.The government should focus on optimizing the reform of land use planning management and land usage regulation institution and speeding up the establishment of second land market and urban-rural unified construction land market.