CAJ | 학술논문

土地利用计划管理是中国土地非农化调控的核心工具,理解其作用原理及绩效对于提升国家土地调控水平具有重要意义.土地利用计划指标是国家每年预算安排给地方政府用于工业化、城镇化的土地发展权.中央-地方土地非农化利益冲突、“国家至上冶社会文化、现行政府管理体制是土地利用计划管理产生的基础.土地利用计划管理面临着信息不完全、预算软约束、棘轮效应、管制俘获等内在难题.2000-2010年全国分省（直辖市、自治区）数据计量分析结果显示,经济增长土地代价水平随着经济发展水平的提升呈先上升后下降的倒“U冶型发展规律.但在现有经济增长模式和土地管理制度下,二、三产业人均生产总值达到约124000元/人之后,土地代价水平才能进入下降通道,与我国土地资源稀缺程度和节约利用的紧迫要求存在-定差距.土地利用计划管理力度上升虽然对近年经济增长土地代价水平降低产生-定积极影响,但未能扭转土地代价水平和建设用地总量的总体发展趋势.应针对现行管理方法存在的不足,结合土地发展权双轨配置格局和政府治理发展趋势,统筹计划内与计划外土地发展权配置,简化计划内指标分配方法,完善计划考核--激励机制,使土地利用计划管理从简单的“土地预算冶管理向引导地方政府合理配置土地的制度工具转变,加快经济增长土地代价水平降低至合理水平.
토지이용계화관리시중국토지비농화조공적핵심공구,리해기작용원리급적효대우제승국가토지조공수평구유중요의의.토지이용계화지표시국가매년예산안배급지방정부용우공업화、성진화적토지발전권.중앙-지방토지비농화이익충돌、“국가지상야사회문화、현행정부관리체제시토지이용계화관리산생적기출.토지이용계화관리면림착신식불완전、예산연약속、극륜효응、관제부획등내재난제.2000-2010년전국분성（직할시、자치구）수거계량분석결과현시,경제증장토지대개수평수착경제발전수평적제승정선상승후하강적도“U야형발전규률.단재현유경제증장모식화토지관리제도하,이、삼산업인균생산총치체도약124000원/인지후,토지대개수평재능진입하강통도,여아국토지자원희결정도화절약이용적긴박요구존재-정차거.토지이용계화관리력도상승수연대근년경제증장토지대개수평강저산생-정적겁영향,단미능뉴전토지대개수평화건설용지총량적총체발전추세.응침대현행관리방법존재적불족,결합토지발전권쌍궤배치격국화정부치리발전추세,통주계화내여계화외토지발전권배치,간화계화내지표분배방법,완선계화고핵--격려궤제,사토지이용계화관리종간단적“토지예산야관리향인도지방정부합리배치토지적제도공구전변,가쾌경제증장토지대개수평강저지합리수평.
Land use plan plays an important role in China＇s farmland conversion regulation and hence understand-ing land use plan＇s function mechanism and performance is helpful for policy improvement. Land use plans canbe defined as land development rights annually granted by the central government for local industrialization andurbanization. Land use plan is rationalized by conflicts between the central government and local governments andnational supremacy culture and current government administration system in China. But land use plan is facedwith some endogenous problems,such as imperfect information,soft budget constraint,ratchet effect and regulatorycapture. Econometric analysis results of provincial level panel-data during 2000 and2010 indicate that land losses of marginal economic growth has manifested an inverted U shape as per capitalGDP is promoted. If there is no more change that happens to current economic growth mode and national land ad-ministration system,land loss level will not decline before per capital GDP of secondary and tertiary industriescomes up to 124000 yuan RMB. Land use plan has played a positive role in the decline of land loss level whilethe tendency of land loss level rising and construction land expanding haven＇t been actually turned round. It isstrongly recommended that land use plan be changed from simple land development rights budget for institutionguiding of local governments＇land allocation behavior. The integration of in-plan and ex-plan land developmentrights allocation,the simplification of plan indicators distribution and the improvement of plan assessment-incen-tive mechanism are all needed to achieve that change.