政府失灵、产权流动壁垒与存量建设用地形成

Government Failure,Property Right Transfer Barriers and Formation of Extant Urban Construction Land

研究目的:以产权流动角度切入城市建设用地由增量到存量的行政配置链条,观察批而未供、闲置土地等“绝对低效”用地形成机制并提出解决方案。研究方法:理论分析、政策文本分析、经验分析法、逻辑归纳法。研究结果:(1)增存联动视角下,城市建设用地从供地指标分配到进入土地要素市场,其产权充分流动是实现行政高效配置土地资源的重要前提;而产权流动壁垒的存在,是导致土地批供用环节供需结构失衡、部分土地要素暂处于国有土地产权公共域之中的直接原因。(2)地方政府决策失灵是存量低效用地产生的源头所在;成本收益考量使地方政府以自身供地需要部分替代了市场需求,在中央政府供给约束下呈现出土地要素市场总量失衡和结构性失衡现象,即土地要素进入市场前存在着政府失灵导致的土地配置效率损失。研究结论:提升行政配置土地资源的效率,核心在于从增量到存量的时间脉络下构建更加完善的国有土地要素市场化配置机制,打破制约政府供给与市场需求良性互动的产权流动壁垒。

The purpose of this study is to analyze the administrative mechanism of land resource allocation from the perspective of property rights transfer,to provide a solution to the“absolutely inefficient”land problems,such as approvals without supply and idle land.The research methods include theoretical analysis,policy text analysis,empirical analysis and logical induction.The research results show that:1)from the allocation of land supply index to the entry of land factor market,the full transfer of property rights is an important prerequisite for realizing the efficient allocation of land resources by administration.However,the existence of property right transfer barriers,make the supply-demand structure unable to connect effectively,and cause a proportion of land temporarily into the public domain of stateowned rights.2)Local government failure induces inefficient land use.Based on the cost-benefit consideration,local governments substitute demand for land factor market,which partly leads to total and structural imbalance of land factor market,resulting in efficiency loss of administrative allocation.In conclusion,to improve the efficiency of administrative allocation of land resources,the core is to build a more complete market-oriented allocation mechanism of state-owned land elements under the temporal transition context from the newly-added land to the extant land.