城市中心城区产业用地从土地出让向“房地出租”的发展探讨
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摘要
在回顾我国城市土地供给制度发展的四个阶段的基础上,分析了过去不同阶段下城市土地供给制度所解决的主要矛盾,并重点探讨了当前城市土地供给在土地回收、土地利用效率、科技创新及产业升级对土地利用方式的冲击以及中小企业土地获取等方面面临的挑战。基于上述挑战及当前城市土地供给制度调整的必要性,提出以政府主导的"房地出租"土地供给模式,阐述其概念设想,剖析该模式的循环、高效及可持续性特征,对比分析其相对于传统土地出让的优势。最后,探讨房地出租四个阶段的设计,即土地的开发(包括建筑物的建设);行业及企业的遴选;租期、租金和税收的确定;合同的签订及后期的评估机制。
Based on a review of the four stages of urban land supply system, this paper analyzes major conflicts for each stage. It then focuses on current challenges of urban land supply in central cities of mega cities, which result from difficulties of retrieving land, low efficiency of land use, industrial upgrading and ignorance on small enterprises. The paper then proposes a new mode of urban land supply, namely "land-floor rental system" led by the government. The concept is illustrated by highlighting three characteristics of circularity, efficiency and sustainability, which represent clear advantages over current urban land supply system. Finally, four phases of instituting the new mode of urban land supply system is explored, which include land development(i.e. construction of buildings), selection of industries and related enterprises, determination of tenancy period, rent and tax, and signing contract and post-rental evaluation.
Based on a review of the four stages of urban land supply system, this paper analyzes major conflicts for each stage. It then focuses on current challenges of urban land supply in central cities of mega cities, which result from difficulties of retrieving land, low efficiency of land use, industrial upgrading and ignorance on small enterprises. The paper then proposes a new mode of urban land supply, namely "land-floor rental system" led by the government. The concept is illustrated by highlighting three characteristics of circularity, efficiency and sustainability, which represent clear advantages over current urban land supply system. Finally, four phases of instituting the new mode of urban land supply system is explored, which include land development(i.e. construction of buildings), selection of industries and related enterprises, determination of tenancy period, rent and tax, and signing contract and post-rental evaluation.
引文
[1]陈振华.从生产空间到生活空间——城市职能转变与空间规划策略思考[J].城市规划,2014,38(4):28-33.(CHEN Zhenhua.From production space to living space:change of urban functions and corresponding spatial planning strategies[J].City Planning Review,2014,38(4):28-33.)
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[11]田党生.关于我国城市土地集约利用的研究及其反思[J].陕西师范大学学报(哲学社会科学版),2010(4):189-192.(TIAN Dangsheng.A view of and reflection on intensified utilization of urban lands in our country[J].Journal of Shanxi Normal University(Philosophy and Social Science Edition),2010,(4):189-192.)
[12]王楠.国有土地有偿使用制度研究[D].青岛:中国海洋大学硕士学位论文,2009.(WANG Nan.Study on the system of compensated use of state-owned land[D].Qingdao:The Dissertation for Master Degree of Ocean University of China,2009.)
[13]袁谆.互联网发展与土地利用结构优化:以上海市为例田.上海国土资源,2015,(4):55-58.(YUAN Zhun.Internet development and optimization of land use structure:a case study from Shanghai[J].Shanghai Land&Resources,2015,(4):55-58.)
[14]张红星.城市土地集约利用与城市经济增长关系研究[J].城市问题,2013(11):19-24.(ZHANG Hongxing.Research on the relationship between intensified urban land use and urban growth[J].Urban Problems,2013(11):19-24.)
[15]张琳,许晶.李影.我国城市土地资源稀缺度与区域经济增长的关系[J].城市问题,2014(3):19-26.(ZHANG Ling,XU Jing,LI Ying.The relationship between the scarcity degree of urban land resources and regional economic growth in China[J].Urban Problems,2014(3):19-26.)
[16]张晓玲.对城市建设拆迁中土地制度的思考[J].城市规划,2006,30(2):31-33.(ZHANG Xiaoling.Consideration over land system in relocation for urban construction[J].City Planning Review,2006,30(2):31-33.)
[17]张宇,刘芳,欧名豪.基于战略性新兴产业发展要求的土地制度支撑体系[J].城市发展研究,2015,22(6):77-82.(ZHANG Yu,LIU Fang,OU Minghao.Research on the support system of land management based on the strategic emerging industries[J].Urban Development Studies,2015,22(6):77-82.)
[18]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(8):14-27.(ZHENG Siqi,SUN Weizeng,WU Jing,et al.Infrastruc-ture investment,land leasing and real estate price:a unique financing and investment channel for urban development in Chinese cities Q].Economic Research Journal,2014(8):14-27.)
[19]庄幼绯,卢为民,王思.互联网经济对土地利用的影响及对策——以上海为例[J].中国土地,2015(11):27-30.(ZHUANG Youfei,LU Weiming,WANG Si.The impact of internet economy on land use and the corresponding countermeasures:taking Shanghai as an example[J].China Land,2015(11):27-30.)
[20]邹兵.增量规划向存量规划转型:理论解析与实践应对[J].城市规划学刊,2015(5):12-19.(ZOU Bing.The transformation from green-based planning to redevelopment planning:theoretical analysis and practical strategies[J].Urban Planning Forum,2015(5):12-19.)
[2]杜雪君,黄忠华.以地谋发展:土地出让与经济增长的实证研究[J].中国土地科学,2015,29(7):40-47.(DU Xuejun,HUANG Zhonghua.Land measures for promoting development:urban land supply and economic growth[J].China Land Science,2015,29(7):40-47.)
[3]付春.新中国建立初期城市土地使用制度的演变与评价[J].学理论,2009,(31):172-173.(FU Chun.Evolution and evaluation of urban land use system in the early days of new China[J].Theory Research,2009,(31):172-173.)
[4]郭贯成,仲济香,陈会广.经济新常态下产业转型引致土地利用管理的新矛盾及其应对——基于“经济新常态下产业转型与土地利用管理改革”研讨会的思考[J].中国土地科学,2016,30(1):75-81.(GUO Guancheng,ZHONG Jixiang,CHEN Huiguang.New conflicts in land use management arising from industrial transformation under the new economic nonnality:Reviews on the workshop in“Industrial transformation under the neweconomic normality and land use management reform”[J].China Land Science,2016,30(1):75-81.)
[5]金俭.国有土地使用权收回制度重构[J].西南民族大学学报(人文社科版),2013,34(1):118-122.(JIN Jian.Reconstruction of the reclaim system of the right to use the stateowned land[J].Journal of Southwest University for Nationalities(Humanities and Social Science),2013,34(1):118-122.)
[6]雷小阳.新型城镇化背景下我国城市土地利用的政府监管研究[D].成都:西南交通大学硕士学位论文,2015,(LEI Xiaoyang.Government regulation of urban land use in the context of new urbanization[D].Chengdu:The Dissertation for Master Degree of Southwest Jiao-tong University,2015.)
[7]李恩平.中国城市土地制度改革回顾与展望[J].改革与战略,2010,26(5):73-75.(LI Enping.A review of the reform of urban land system in China[J].Reformation and Strategies,2010,26(5):73-75.)
[8]李明月,胡竹枝.土地要素对经济增长贡献的实证分析田.软科学,2005,19(6):21-23.(LI Mingyue,HU Zhuzhi.Empirical study on contribution rate of land to economic growth in Shanghai[J].Soft Science,2005,19(6):21-23.)
[9]鲁悦.国有土地使用权收回制度研究[D].南京:南京大学硕士学位论文,2014.(LU Yue.Study on the system of reclaiming the right to use the state-owned land[D].Nanjing:The Dissertation for Master Degree of Nanjing University,2014.)
[10]石成球.关于我国城市土地利用问题的思考[J].城市规划,2000,24(2):11-15.(SHI Chengqiu.Thinking on the problem of urban land use in China[J].City Planning Review,2000,24(2):11-15.)
[11]田党生.关于我国城市土地集约利用的研究及其反思[J].陕西师范大学学报(哲学社会科学版),2010(4):189-192.(TIAN Dangsheng.A view of and reflection on intensified utilization of urban lands in our country[J].Journal of Shanxi Normal University(Philosophy and Social Science Edition),2010,(4):189-192.)
[12]王楠.国有土地有偿使用制度研究[D].青岛:中国海洋大学硕士学位论文,2009.(WANG Nan.Study on the system of compensated use of state-owned land[D].Qingdao:The Dissertation for Master Degree of Ocean University of China,2009.)
[13]袁谆.互联网发展与土地利用结构优化:以上海市为例田.上海国土资源,2015,(4):55-58.(YUAN Zhun.Internet development and optimization of land use structure:a case study from Shanghai[J].Shanghai Land&Resources,2015,(4):55-58.)
[14]张红星.城市土地集约利用与城市经济增长关系研究[J].城市问题,2013(11):19-24.(ZHANG Hongxing.Research on the relationship between intensified urban land use and urban growth[J].Urban Problems,2013(11):19-24.)
[15]张琳,许晶.李影.我国城市土地资源稀缺度与区域经济增长的关系[J].城市问题,2014(3):19-26.(ZHANG Ling,XU Jing,LI Ying.The relationship between the scarcity degree of urban land resources and regional economic growth in China[J].Urban Problems,2014(3):19-26.)
[16]张晓玲.对城市建设拆迁中土地制度的思考[J].城市规划,2006,30(2):31-33.(ZHANG Xiaoling.Consideration over land system in relocation for urban construction[J].City Planning Review,2006,30(2):31-33.)
[17]张宇,刘芳,欧名豪.基于战略性新兴产业发展要求的土地制度支撑体系[J].城市发展研究,2015,22(6):77-82.(ZHANG Yu,LIU Fang,OU Minghao.Research on the support system of land management based on the strategic emerging industries[J].Urban Development Studies,2015,22(6):77-82.)
[18]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(8):14-27.(ZHENG Siqi,SUN Weizeng,WU Jing,et al.Infrastruc-ture investment,land leasing and real estate price:a unique financing and investment channel for urban development in Chinese cities Q].Economic Research Journal,2014(8):14-27.)
[19]庄幼绯,卢为民,王思.互联网经济对土地利用的影响及对策——以上海为例[J].中国土地,2015(11):27-30.(ZHUANG Youfei,LU Weiming,WANG Si.The impact of internet economy on land use and the corresponding countermeasures:taking Shanghai as an example[J].China Land,2015(11):27-30.)
[20]邹兵.增量规划向存量规划转型:理论解析与实践应对[J].城市规划学刊,2015(5):12-19.(ZOU Bing.The transformation from green-based planning to redevelopment planning:theoretical analysis and practical strategies[J].Urban Planning Forum,2015(5):12-19.)