政府垄断、双轨制与土地过度征用――基于协议征地到公告征地的理论 .pdf

政府垄断、双轨制与土地过度征用 ――基于协议征地到公告征地的理论与实证研究 ∗ 刘 愿 本文即将发表于（美国）《當代中國研究》“中國三農問題專刊”2012 年12 月 摘要：耕地保护是“事关全国大局和中华民族子孙后代的大问题”，但我国土地过度征用及 由此引发的农地过度非农化问题愈益严重，市场与政府在其中的作用备受争议。本文以 1999 年土地征用从协议征地制到公告征地制为突破口，介绍了我国土地征用制度变迁，并从理论 上证明财政分权背景下土地市场政府垄断及双轨制加剧我国土地过度征用，地方政府追求土 地租金的强烈冲动是我国土地过度征用的主要原因。本文运用 1995-2005 年我国省级面板数 据检验了上述假说，主张打破政府垄断并允许农民集体建设用地入市流转。 关键词：政府垄断 双轨制 土地财政依赖 土地过度征用 中图分类号：F320 Government Monopoly, Dual-Track System and Excess Land Requisition: A Theoretical and Empirical Study on the Reform from Land Requisition through Negotiation to Land Requisition through Public Notification LIU YUAN SOUTH CHINA NORMAL UNIVERSITY Abstract: Arable land protection is an important task in terms of China’s overall security and stability, and its long-term future. However, excess land expropriation becomes accelerated, meanwhile the undefined role of the market vs the government on over-conversion of farmland causes lots of controversy. Using the fact that 1999 marked the year when land taking procedure was switched institutionally from land requisition through negotiation to land requisition through public notification, and the provincial data from 1995 to 2005, we conduct a theoretical and empirical study on how the government monopoly and dual-track system of land market, as well as excessive dependence of local government on land revenue worsen the land expropriation, resulting in over-conversion of farmland. Based on the findings we suggest that the government monopoly in land market should be abolished and collective-owned land should be treated equally as the state-owned land in the land market so that peasan