用途管制要过滤的是市场失灵还是非国有土地的入市权 定稿.docx

用途管制要过滤的是市场失灵还是非国有土地的入市权？--与陈锡文商榷如何破除城乡二元结构What Should be Filtered by Zoning: Market Failure or Entry Right of Non-State Owned Land?文贯中上财高研院高研院美国三一学院经济系摘要土地规划和用途管制之兴起，源于匡正以负外部性和公共用地不足为代表的市场失灵的需要，因而是市场配置的必要补充。作为中央计划的残余，现行规划和管制却违背这一初衷，禁止非国有土地入市，垄断所有土地的转用和交易，却对市场失灵随所有制的不同而差别对待。这种违反法律和市场的平等原则，随意决定土地分类比例和使用方式的行政配置，使土地的稀缺性和需求的无限性之间的矛盾日趋尖锐。显然，现行规划和管制既损害效率，又违反正义，是中国经济和社会结构严重扭曲，贫富和城乡差别居高不下的主要制度原因。除非改革现行规划和管制，使其回归辅助角色，并对所有市场失灵一视同仁，土地市场无以发育, 结构性失衡也无以纠正。AbstractThe rise of land planning and zoning was a necessary response to the need to address market failure, represented by negative externalities and lack of public space as a result of urbanization. Different from the role complementary to market allocation, as is seen in developed market economies, China’s planning and zoning as the main remnant of its dismantled Central Planning System, has been directly allocating land by arbitrarily determining land zoning, prohibiting non-state owned land to have the equal right to enter land market, while selectively regulating market failure, depending on the type of land ownership. Thus this system violates the principle of equality of all types of ownership in front of law and market. Consequently, this system has failed to equilibrate supply of and demand for land, and caused rampant inefficiency and widespread social unjust. China has to thoroughly reform this planning and zoning system before land market can acquire necessary rooms to emerge and help correct the serious structural distortions. 举世无双的土地规划权和用途管制权的实施结果18届3中全会的决定 (以下称《决定》) 提出，要“紧紧围绕使市场在资源配置中起决定性作用深化经济体制改革”。这一提法中要大家紧紧围绕的改革目标正是现代经济学的主要结论。自1990年代初中国决定走市场经济道路至今已有20多年。此间中国解决了产品的生产和销售的市场化，却因制度和理念上的障碍，未能实现要素配置的市场化。以GDP的增长率衡量，中国取得举世瞩目的高速成长；但所累积的扭曲，例如经济结构严重失调，收入分配严重不均，内需不振，城乡二元结构难以撼动，房市泡沫化等，不容继续熟视无睹。可见排斥市场在资源配置中的决定性功能，由政府直接操盘，虽可急功近利，却无法避免资源配置的浪费和不公。然而，正如西谚所说，魔鬼匿居于细节之中。坐而论道，需要紧紧围绕的改革目标似已清晰，但起而实施，立即涉及如何操作的问题。要建立土地市场，就要容许所有的土地自由入市交易。但是，土地自由入市正是现行土地规划和用途管制所要严格禁止的。一些主管部门的官员和著名学者强调规划和土地用途管制中的决定性作用必须由政府担任。陈锡文（2013）指出，“在土地利用和农地规划的领域