资源科学 ›› 2017, Vol. 39 ›› Issue (2): 188-197.doi: 10.18402/resci.2017.02.02

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中央和地方政府农地转用审批动力机制及其差异

龙开胜(), 杜薇   

  1. 南京农业大学公共管理学院,南京 210095
  • 收稿日期:2016-08-25 修回日期:2016-11-13 出版日期:2017-02-25 发布日期:2017-02-20
  • 作者简介:

    作者简介:龙开胜,男,湖南绥宁人,副教授,博士生导师,主要研究方向为土地法学、土地制度与政策。E-mail:longkaisheng@njau.edu.cn

  • 基金资助:
    教育部哲学社会科学研究重大课题攻关项目(13JZD014);2016年度江苏高校“青蓝工程”优秀青年骨干教师培养计划项目

Differences in mechanisms of agricultural land conversion permission between central and local governments in China

Kaisheng LONG(), Wei DU   

  1. College of Public Administration,Nanjing Agricultural University,Nanjing 210095,China
  • Received:2016-08-25 Revised:2016-11-13 Online:2017-02-25 Published:2017-02-20

摘要:

农地转用审批是中国土地用途管制的重要制度安排,对控制农地非农化具有重要作用。通过构建中央和地方政府农地转用审批动力机制的理论框架,并运用2000-2012年省级层面数据进行实证分析,揭示中央和地方农地转用审批动力机制差异。结果表明,虽然中央和地方政府农地转用审批均受到经济和财政等因素的共同驱动作用,但中央和地方政府农地转用审批的资源管控机制和目标导向机制差异明显。总体上,中央政府倾向于严格遵守国家农地管控规则进行审批,地方政府却具有应对管制规则扩大审批规模的倾向。较之中央政府,地方政府农地转用审批更容易受到区域耕地资源禀赋、土地利用比较效益和财政支出、收入等因素的影响。此外,中央和地方政府农地转用审批动力还表现出东中西部之间的差异性。东部地区中央和地方政府农地转用审批动力因素差异最明显,西部地区次之,中部地区最不明显。今后,应加强中央和地方政府在农地转用审批上的分工合作,优化中央与地方政府农地转用审批权限,因地制宜地实施农地转用审批管理措施,促进农地转用制度发挥作用。

关键词: 农地转用, 行政审批, 动力机制, 中央政府, 地方政府

Abstract:

Agricultural land conversion permission is a crucial institutional arrangement for land use regulation in China and plays an important role in controlling agricultural land conversion. On the basis of constructing a framework of mechanisms of agricultural land conversion permission,differences in driving mechanisms between central and local governments were revealed using provincial data for 2002-2012 in China. The results show that,although agricultural land conversion permission for central and local governments is driven by economic and fiscal factors,there are significant differences between central and local governments regarding resource regulation and goal orientation. In general,the central government prefers to approve agricultural land conversion strictly according to national rules of agricultural land regulation;however,local governments prefer to expand the approved conversion quantity of agricultural land against regulation rules. Compared with the central government,local government agricultural land conversion permission is more likely to be affected by arable land quantity,comparative effectiveness of land use,and fiscal income and expenditure. In addition,differences in driving forces of agricultural land conversion permission of central and local governments exist in eastern,middle and western China. Eastern China has the biggest difference,middle China is the second,and western China has the lowest. In future,solutions including strengthening division and cooperation between central and local governments,optimizing power allocation in central and local governments,and implementing management procedures according to local conditions would improve agricultural land conversion permission systems in China.

Key words: agricultural land conversion, administration permission, driving mechanism, central government, local government