以地谋发展模式的风险与改革

土地在中国上一轮经济发展中扮演了独特且举足轻重的角色。这一时期土地制度不仅是实现经济高增长的秘密之一,同时也为中国经济的可持续发展埋下了巨大隐患。权利二元、政府垄断、非市场配置和管经合一的土地管理体制,为地方政府经营土地财政创造了条件,但也带来了日益增加的经济与社会风险。未来中国要实现可持续发展,必须改革以地谋发展模式,包括推动以产权为基础的市场配置方式改革,完成土地财政转型,完善与现代社会相适应的财产税制度,建立公平、共享的增值收益分配制度,建立服务现代社会管理的统一登记制度等五个方面。

Risks and Reform of Land-Based Development Model

This article investigates the unique role of land in China ’ s previous cycle of fast development and argues that the instrumental use of land has not only been the key to China ’ s super-high growth in the past decade, but also accumulated significant economic and social risks threatening China ’ s sustainable development. The land management system, which features a combined structure of power, government monopoly, non-market distribution of resources and a mixed role for both rule-maker and market dealer, has facilitated local governments ’ effort to profit from land sales but also brought increasing social and economic risks. This article suggests that to achieve sustainable development, China must reform its land-based development model and carry out such reforms as property rights-based market distribution of resources, transition of land-based finance, establishment of a modern property taxation system and an equitable and fair incremental benefit-sharing system as well as a modern unified registration system.