处于十字路口的中国土地城镇化——土地有偿使用制度建立以来的历程回顾及转型展望

20世纪90年代以来我国城镇化的高速发展,土地资本化在其中扮演了重要角色。通过土地出让,政府积累了大量的财政收入用于基础设施建设和改善投资环境。但同时,过于依赖土地资本化衍生的土地财政,也导致土地的福利功能大大削弱。建设用地的无序蔓延、房价飙升超过绝大多数人的购买力及忽视"人的城镇化",导致了一系列社会问题、经济问题和环境问题。本文回顾了有偿使用制度建立以来我国土地政策和土地市场的变迁,分析了土地城镇化的双刃剑效应,探讨了土地城镇化进程中的利益主体和博弈机制,最后,对未来土地城镇化的转型方向进行了展望。

LAND URBANIZATION OF CHINA AT THE CROSS ROAD:A REVIEW ON THE EVOLUTION SINCE THE ESTABLISHMENT OF LAND USE RIGHT SYSTEM AND THE PROSPECT OF ITS TRANSFORMATION

Land capitalization has played a key role in the rapid urbanization of China since the 1990s. Through the leasing of land, local government has accumulated the revenue to improve the infrastructure construction and the investment environment. Nevertheless, excessively seeking for land profit has led to the weakening of the function of land as welfare. As a result, there have emerged a series of social, economic, and environmental problems such as sprawl of construction land, sharp rise of housing price, and negligence of the welfare of floating population. This paper reviews the evolution of land policies and land market since the establishment of the land use right system, examines the positive and negative effects of land urbanization, defines the stakeholders, and analyzes the operation mechanism in the land urbanization process. It concludes with a prospect on the transformation of land urbanization in the future.