二元土地制度与双轨城市化

1990年代开始,中国城市化进入快速发展通道,常住人口城镇化率从1990年的26.41％增长到2016年的57.35％,年均增长3.03％.在二元土地制度下,中国的城市化呈现明显的双轨特征:一条轨道是政府依靠强制低价征收和土地一级市场垄断主导的城市化,解决了城市化进程中的资本来源和公共品提供,也导致城市蔓延、效率低下、结构失衡、政府财政和银行金融风险;另一轨道是农民自发在“城乡结合部”或“城中村”聚集的城市化,农民集体组织提供公共服务,也造成法外之地蔓延、基本公共服务提供能力不足、外地人与本地人的权利不平等、以及治安事件集中发生等城市治理问题.分析了中国二元制度导致双轨城市化的机制,政府主导城市化和农民自发城市化的特征和问题,提出了改革土地制度实现城市化并轨的政策建议.

Dual-track Urbanization Under the Dual Land Ownership System

Since 1990s,China's urbanization has entered a period of rapid development.The urbanization rate of resident population has increased from 26.41％ in 1990 to 57.35％ in 2016,with an average annual increase of 3.03％.Under the dualistic land system,China's urbanization shows obvious double-track characteristics.One track is that the government dominates primary land market through compulsory low-cost land acquisition and this provides the capital necessary for the provision of public goods in the urbanization process.The side-effects are urban sprawl,inefficiency,structural imbalances,and excessive financial risks to the government banks.In the second track,peasants spontaneously gather in peri-urban areas or "villages in the city," while the rural collective organizations provide public services.The second track leads to the spread of informal spaces,lack of basic public service provision,unequal rights between migrants and locals and other problems of urban governance such as the spatial concentration of public security incidents.In light of China's dualistic system,this paper analyzes the characteristics and problems of government-led urbanization and peasants' spontaneous urbanization,and puts forward some policy suggestions on reforming the land system to achieve better urbanization results.