【作者】 李菲；

【导师】 姚树荣；

【作者基本信息】 四川大学 ， 政治经济学， 2023， 硕士

【摘要】 2020年,中共中央国务院印发的《关于构建更加完善的要素市场化配置体制机制的意见》明确提出推进土地要素从低质低效向优质高效领域流动,深化土地要素市场化配置改革是未来一段时间内我国经济体制改革和社会治理的重心。中国的土地问题是与土地市场之外的因素尤其政府间关系联动的,政府间关系作为一种制度安排,影响着政府行为的选择范围和选择策略,从而影响着城市土地要素市场化配置改革的进程。厘清土地市场与政府的互动模式对于土地要素市场化配置改革具有指导意义。基于此,本文从政府间关系的视角作为切入,考察政府间的互动对城市土地要素市场化配置改革的影响及实践路径。本文首先回顾了相关文献研究与理论基础,在此基础上采用“制度环境-主体行为-改革绩效”的逻辑构建了一个政府间关系影响城市土地要素市场化配置改革的理论分析框架。其次,采用历史分析法印证了上述分析框架在我国城市土地要素市场化配置改革的历史实践中的合理性。最后,在理论分析和历史分析的基础上,对政府间关系影响城市土地要素市场化配置改革作了总体考察。通过理论分析和历史分析,得出以下结论:第一,政府间权力配置在结构上具有稳定性,内容上随着政府间利益关系的调整而不断调适。中央政府在稳定的制度框架内动态调整权力配置的具体内容,巧妙设计了地方政府实施土地委托代理任务的激励约束机制,这种激励和约束的边界不是固定的,随着经济社会的发展和土地要素市场化配置改革的深化,中央政府会调整府际权力结构的具体内容即进行制度创新来影响地方政府的行为,以期实现中央政府提出的土地要素高效配置推动经济的高质量发展的任务要求。这种动态变化的影响机制推动着我国城市土地要素市场化配置改革的进程。第二,政府间与土地市场的联动改革是城市土地要素市场化配置改革的关键所在。土地要素市场化配置改革的三个阶段中贯穿着中央与地方政府互动、地方政府与土地市场互动的主线。总体上看,我国央地权力配置的具体内容的调整和土地要素市场化改革同步进行,正在建立良性循环。第三,政府间关系影响的城市土地要素市场化配置改革具有中央政府制度修正的全方位把控、地方政府利益主体的全过程参与、政府与土地市场联动改革三个基本特征。最后基于上述结论提出了四点政策建议:(1)调整府际激励约束机制,以政绩考核制度改革推进土地治理现代化;(2)厘清政府与土地市场的边界,以土地产权制度改革健全土地要素的价格形成机制;(3)明晰央地事权界限,确保央地财权匹配,以财税制度改革理顺土地要素收益分配机制;(4)加强中央政府的权威,硬化土地管理的刚性约束。以中央环境督察的严格标准推进土地督察制度建设,优化地方政府政策执行绩效的监督机制。本文可能的创新点在于:一是构建了一个政府间关系影响城市土地要素市场化配置改革的理论分析框架;二是研究视角的创新。从政府间关系的动态变化来观察我国城市土地要素市场化配置改革的全过程,较为系统全面的论述了政府与政府、政府与土地市场间的互动模式。本文的不足之处在于数据获取多属于原始数据,且局限在定性分析上,没有运用计量的方法进行实证检验,构建的政府间关系对城市土地要素市场化配置改革的影响机制还存在创新性不足的问题。更多还原

【Abstract】 In 2020,the CPC Central Committee and The State Council issued Opinions on Building a more Perfect Market-oriented Allocation System and Mechanism of Factors,which clearly stated that promoting the flow of land factors from low quality and low efficiency to high-quality and efficient areas and deepening the market-oriented allocation reform of land factors would be the focus of China’s economic system reform and social governance in the future.China’s land problems are linked to factors outside the land market,especially inter-governmental relations.As an institutional arrangement,inter-governmental relations affect the selection scope and strategy of government behaviors,and thus affect the process of market-oriented allocation reform of urban land elements.Clarifying the interaction mode between the land market and the government is of guiding significance for the reform of land factor marketization allocation.Based on this,this paper starts from the perspective of the relationship between governments to investigate the impact and practical path of the interaction between governments on the market-oriented allocation reform of urban land factors.This paper first reviews the relevant literature and theoretical basis,and then adopts the logic of "inter-governmental target-institutional environment-subject behaviors-reform performance" to construct a theoretical analysis framework of the influence of inter-governmental relations on the reform of market-oriented allocation of urban land factors.Secondly,the rationality of the above analysis framework in the historical practice of market-oriented allocation reform of urban land elements is verified by the historical analysis method.Finally,on the basis of theoretical analysis and historical analysis,the influence of inter-governmental relations on the reform of the market-oriented allocation of urban land factors is investigated.Through theoretical analysis and historical analysis,the following conclusions are drawn:First,the distribution of inter-government power is stable in structure,and its content is constantly adjusted with the adjustment of inter-government interest relations.The central government dynamically adjusts the specific content of power allocation within the stable framework of the inter-governmental power structure of political centralization,administrative and economic decentralization,and cleverly designs the incentive and constraint mechanism for local governments to implement the land entrusted agent task.The boundary between decentralization incentive and centralization constraint is not fixed.With the development of economic society and the dynamic balance of inter-governmental land objectives,The central government will adjust the specific content of the inter-governmental power structure to influence the behavior of local governments in order to maximize the land target of the central government.The influence mechanism of dynamic change pushes forward the process of market-based allocation of urban land elements.Second,the linkage reform between the government and the land market is the key to the market-oriented allocation reform of urban land factors.The three stages of market-oriented allocation reform of land factors run through the main line of the interaction between central government and local government and the interaction between local government and land market.Generally speaking,the adjustment of central land power allocation and the market-oriented reform of land factors are proceeding simultaneously,which is establishing a virtuous circle.Thirdly,the market-oriented allocation reform of urban land factors influenced by inter-governmental relations has three basic characteristics: all-round control of central government system revision,whole-process participation of local government interest subjects,and linkage reform between government and land market.Finally,based on the above conclusions,four policy suggestions are put forward:(1)Adjust the inter-governmental incentive and restraint mechanisms,and modernize land management through the reform of the performance evaluation system;(2)Clarify the boundary between the government and the land market,and improve the price formation mechanism of land elements with the reform of land property right system;(3)Clarify the boundaries of central and local power,ensure the matching of central and local financial power,and straighten out the land element income distribution mechanism with the reform of the fiscal and tax system;(4)Strengthen the authority of the central government and harden the rigid constraints of land management.We will promote the development of a land supervision system based on the strict standards of central environmental supervision,and improve the supervision mechanism for local governments’ policy implementation.The possible innovation points of this paper are as follows: first,it constructs a theoretical analysis framework of the influence of inter-governmental relations on the reform of the market-oriented allocation of urban land elements;The second is the innovation of research perspective.To observe the whole process of market-based allocation of urban land elements in our country from the dynamic changes of inter-governmental relations,this article systematically and comprehensively expounds the interaction mode between the government and the government and the land market.The shortcoming of this paper is that data acquisition is mostly original data,and it is limited to qualitative analysis,without empirical test using quantitative methods.The influence mechanism of inter-governmental relationship on the market-oriented allocation reform of urban land factors still has the problem of insufficient innovation.更多还原