城市扩张中留用地的公平配置与开发模式研究——以武汉市为例
The Fair Allocation and Development Modes of Collective Reserved Land in Urban Expansion: A Case Study of Wuhan City
郭 炎
武汉大学城市设计学院 湖北省人居环境工程技术研究中心 副教授，博士生导师
叶 睿
广州市城市更新土地整备保障中心
徐桢敏
武汉市自然资源保护利用中心 正高级工程师
陈 力
武汉市自然资源保护利用中心 工程师
摘要: 基于公平理论，探究财税导向的城市经济积累中留用地的非均衡配置与差异化开发模式,并选取武汉的典型地域，以半结构式访谈的方法开展实证，揭示留用地开发中的收益差距现象，为促进留用地公平开发提出了政策建议。结果表明：（1）留用地配置的公平性不仅体现在政府驱动的经济增长与失地农民发展权益的保障上，还体现为村集体间发展的公平性、村集体内部成员间分配的公平性；（2）留用地属性与村集体资源的不同匹配状况构成非均衡的初始分配格局，导致投资经营方式、收益分配等开发模式的差异化选择，使收益差距扩大；（3）保障留用地公平开发，需注重各阶段的规划与调控，在城市规划、留用地配置、留用地开发与收益分配阶段采取相应调节措施，完善留用地配置机制。
Abstract: Based on the equity theory, this paper reveals the unbalanced allocation and different development modes of collective reserved land in the fiscal and tax oriented urban economic accumulation. Through the method of semi-structural interview in typical areas of Wuhan, this paper analyzes the revenue gaps among stakeholders in the development of reserved land and puts forward strategic suggestions for promoting the fair development of reserved land. The research shows that: (1) the equity of collective reserved land is not only reflected in the government driven economic growth and the protection of the development rights of landless farmers, but also reflected in the equity of development among village collectives and distribution among members within collectives; (2) the different matching conditions of collective reserved land and resources of collectives constitute an unbalanced initial distribution pattern, which leads to the differential development modes such as investment and operation mode and income distribution, and widens the income gap; (3) to ensure the fair development, we need to pay attention to the planning and regulation of each stage, take corresponding adjustment measures in the stages of zone planning, allocation, development and income distribution of collective reserved land, and improve the allocation mechanism of collective reserved land.
关键词：土地财政；城市扩张；公平；留用地；开发模式
Keyword: land finance; urban expansion; equity; collective reserved land; development mode
中图分类号：TU984
文献标识码: A
资金资助
国家自然科学基金面上项目 投融资视角下社区更新中环境重构的机理、效应与对策：以武汉市为例 52378074
国家自然科学基金面上项目 资本循环视角下乡村社会空间重构的机理、效应与调适——以湖北湖南两个县级行政区为例 41971185
中央高校基本科研业务费专项资金 健康城市智能感知与模拟优化 2042023kfyq04
参考文献 References
张京祥，赵丹，陈浩. 增长主义的终结与中国城市规划的转型[J]. 城市规划，2013，37（1）：45-50，55.
ZHANG Jingxiang, ZHAO Dan, CHEN Hao. Termination of growth supremacism and transformation of China's urban planning[J]. City Planning Review, 2013, 37(1): 45-50, 55.
赵宁宁，郭炎，李志刚，等. 中部地区乡村生产要素协同转型的时空格局及影响因素——以湖南岳阳为例[J]. 自然资源学报，2021，36（12）：3170-3185.
ZHAO Ningning, GUO Yan, LI Zhigang, et al. Influencing factors and spatial-temporal patterns of the collaborative transformation of rural production factors in Central China: a case study of Yueyang, Hunan Province[J]. Journal of Natural Resources, 2021, 36(12): 3170-3185.
许红梅，郭炎，李志刚，等. 资本循环视角下农地流转的空间格局与机制——以武汉市蔡甸区为例[J]. 地理研究，2021，40（4）：994-1007.
XU Hongmei, GUO Yan, LI Zhigang, et al. Spatial patterns of farmland transfer and the mechanisms from the perspective of capital cycle: a case study of Caidian, Wuhan City[J]. Geographical Research, 2021, 40(4): 994-1007.
张占录. 完善留用地安置模式的探索研究[J]. 国家行政学院学报，2009（2）：81-83.
ZHANG Zhanlu. The research on improving the resettlement mode of reserved land[J]. Journal of Chinese Academy of Governance, 2009(2): 81-83.
梁印龙，田莉，严雅琦，等. 集体留用地的土地发展权：国土空间规划背景下的思考[J].南方建筑，2021（2）：1-8.
LIAN Yinlong, TIAN Li, YAN Yaqi, et al. Land development rights of collective reserved land in the territorial spatial planning[J]. South Architecture, 2021(2): 1-8.
邓毛颖，张迪瀚，刘志刚，等. 大城市外围地区留用地开发模式探析——以广州市增城区为例[J]. 城市发展研究，2019，26（10）：21-27.
DENG Maoying, ZHANG Dihan, LIU Zhigang, et al. On models of rural collective retained landing peripheral area of large cities: taking Zengcheng District of Guangzhou as a case[J]. Urban Development Studies, 2019, 26(10): 21-27.
金晓斌，魏西云，李学瑞. 被征地农民留用地安置方式的特征与模式分析[J]. 中国农学通报，2008（8）：485-489.
JIN Xiaobin, WEI Xiyun, LI Xuerui. Feature and model research on compensation with development right return for land lost peasants[J]. Chinese Agricultural Science Bulletin, 2008(8): 485-489.
谢理，邓毛颖. 多方共赢的农村集体土地留用地开发新模式探讨——以广州市外围区为例[J]. 华南理工大学学报（社会科学版），2015，17（1）：94-100.
XIE Li, DENG Maoying. Discussion on a new win-win development mode of rural collective retained land: with the peripheral area of Guangzhou City as an example[J]. Journal of South China University of Technology (Social Science Edition), 2015, 17(1): 94-100.
黄秀华. 公平理论研究的历史、现状及当代价值[J]. 广西社会科学，2008（6）：53-58.
HUANG Xiuhua. The evolution, status and contemporary significance of fairness theory research[J]. Social Sciences in Guangxi, 2008(6): 53-58.
约翰•罗尔斯. 正义论[M]. 北京：中国社会科学出版社，1988．
RAWLS J. A theory of justice[M]. Beijing: China Social Sciences Press, 1988.
朱介鸣，郭旭，郭炎. 国土空间规划重构紧凑城市：乡乡差别与空间公平[J]. 城市规划，2022（6）：48-57.
ZHU Jieming, GUO Xu, GUO Yan. Compact city restructured by territorial planning: differentiation between villages and spatial justice[J]. City Planning Review, 2022(6): 48-57.
SEN A, SEN M A, FOSTER J E, et al. On economic inequality[M]. Oxford: Oxford University Press, 1997.
郭炎，叶睿，袁奇峰，等. 土地开发权的规划配置与集体产业用地转型研究——以佛山市南海区为例[J]. 城市发展研究，2022，29（2）：116-123.
GUO Yan, YE Rui, YUAN Qifeng, et al. Uneven assignment of land development rights and the transformation of collective industrial land: a case study of Nanhai, Foshan[J]. Urban Development Studies, 2022, 29(2): 116-123.
郭炎，李志刚，王国恩，等. 集体土地资本化中的“乡乡公平”及其对城市包容性的影响——珠三角南海模式的再认识[J]. 城市发展研究，2016，23（4）：67-73.
GUO Yan, LI Zhigang, WANG Guoen, et al. Social equity between villages under capitalization of collectively-owned land and its impact on urban inclusivity[J]. Urban Development Studies, 2016, 23(4): 67-73.
朱玲，魏众. 包容性发展与社会公平政策的选择[M]. 北京：经济管理出版社，2013.
ZHU Ling, WEI Zhong. Inclusive development and policy choices towards social justice[M]. Beijing: Economy & Management Publishing House, 2013.
胡怀国. 经济转轨中的公平与效率——读《包容性发展与社会公平政策的选择》[J]. 经济研究，2013，48（6）：155-160.
HU Huaiguo. Fairness and efficiency in economic transition: a review of Inclusive Development and Policy Choices Towards Social Justice[J]. Economic Research Journal, 2013, 48(6): 155-160.
常兴华，徐振斌，李伟，等. 促进形成合理的居民收入分配机制研究（总报告）[J]. 经济研究参考，2010（25）：2-28.
CHANG Xinghua, XU Zhenbin, LI Wei, et al. Study on facilitating the development of a rational mechanism for residents' income distribution[J]. Review of Economic Research, 2010(25): 2-28.
周飞舟. 生财有道：土地开发和转让中的政府和农民[J]. 社会学研究，2007（1）：49-82，243-244.
ZHOU Feizhou. The role of government and farmers in land development and transfer[J]. Sociological Studies, 2007(1): 49-82, 243-244.
林毅夫，蔡昉，李周. 中国的奇迹：发展战略与经济改革[M]. 上海：上海三联书店，1994.
LI Yifu, CAI Fang, LI Zhou. The miracle of China: development strategy and economic reform[M]. Shanghai: Shanghai Joint Publishing, 1994.
张京祥，吴缚龙，马润潮. 体制转型与中国城市空间重构——建立一种空间演化的制度分析框架[J]. 城市规划，2008（6）：55-60.
ZHANG Jingxiang, WU Fulong, MA Runchao. Institutional transition and reconstruction of China's urban space: establishing an institutional analysis structure for spatial evolution[J]. City Planning Review, 2008(6): 55-60.
周业安，章泉. 财政分权、经济增长和波动[J]. 管理世界，2008（3）：6-15，186.
ZHOU Ye'an, ZHANG Quan. Financial decentralization, economic growth and fluctuations[J]. Journal of Management World, 2008(3): 6-15, 186.
姚洋，杨雷. 制度供给失衡和中国财政分权的后果[J]. 战略与管理，2003（3）：27-33.
YAO Yang, YANG Lei. The consequences of the imbalance of institutional supply and the fiscal decentralization in China[J]. Strategy and Management, 2003(3): 27-33.
陶然，袁飞，曹广忠. 区域竞争、土地出让与地方财政效应：基于1999—2003年中国地级城市面板数据的分析[J]. 世界经济，2007（10）：15-27.
TAO Ran, YUAN Fei, CAO Guangzhong. Regional competition, land disposal and local fiscal effects: an analysis based on panel data of Chinese prefecture-level cities from 1999 to 2003[J]. The Journal of World Economy, 2007(10): 15-27.
孙秀林，周飞舟. 土地财政与分税制：一个实证解释[J]. 中国社会科学，2013（4）：40-59，205.
SUN Xiulin, ZHOU Feizhou. Land finance and the tax-sharing system: an empirical explanation[J]. Social Sciences in China, 2013(4): 40-59, 205.
郑思齐，孙伟增，吴璟，等. “以地生财，以财养地”——中国特色城市建设投融资模式研究[J]. 经济研究，2014，49（8）：14-27.
ZHENG Siqi, SUN Weizeng, WU Jing, et al. Infrastructure investment, land leasing and real estate price: a unique financing and investment channel for urban development in Chinese cites[J]. Economic Research Journal, 2014, 49(8): 14-27.
BARRO R J. The loan market, collateral, and rates of interest[J]. Journal of Money, Credit and Banking, 1976, 8(4): 439-456.
STIGLITZ J E, WEISS A. Credit rationing in markets with imperfect information[J]. The American Economic Review, 1981, 71(3): 393-410.
张京祥，陈浩. 增长主义视角下的中国城市规划解读——评《为增长而规划：中国城市与区域规划》[J]. 国际城市规划，2016，31（3）：16-20.
ZHANG Jingxiang, CHEN Hao. Understanding Chinese urban planning in the growth-first politics: based on a review of Planning for Growth: Urban & Regional Planning in China[J]. Urban Planning International, 2016, 31(3): 16-20.
谢涤湘，牛通，范建红. 新型城镇化背景下留用地制度的创新——以典型地区留用地政策为例[J]. 城市问题，2017（9）：19-25.
XIE Dixiang, NIU Tong, FAN Jianhong. Innovation of land retention system under the new-type urbanization: a case of typical area land retention policies[J]. Urban Problems, 2017(9): 19-25.
姚如青. 农村土地非农开发和集体经济组织重构——基于浙江两种留地安置模式的比较[J]. 中国经济问题，2015（6）：37-48.
YAO Ruqing. Rural land non-agricultural development and collective economic organization restructuring: comparison of two return-land-resettlement patterns in Zhejiang Province[J]. China Economic Studies, 2015(6): 37-48.
