從廣州大學城建設看廣州市政府土地開發動力

Abstract

1978年中國進入改革開放階段，中央政府的權利下放以及土地有償使用與出讓制度的建立，導致地方政府對於城市土地開發的權利與誘因增加，在這樣的背景下，促使地方政府開始以”經濟人”的身分去思考如何提升城市競爭力，以及如何去經營與利用有限的土地資源。地方政府最早出現的大規模土地開發模式為開發區的設立，然而開發區設立所衍生出過量土地徵用導致耕地資源浪費、工業用地使用不經濟、以及違法徵用耕地忽略失地農民的照護等問題，使得中央開始對開發區進行必要的治理與整頓。自1992年底開始至2003年底，開發區的整頓始見成效，中國各地已停止審批設立新的開發區和開發區擴區，原有各類開發區也已撤銷近半，這標誌著中國開發區進入清理、整頓、規範階段。然而與此同時地方政府另一種轉向二、三級產業發展的大規模土地開發模式－大學城，也正在蘊釀並依托知識經濟時代、科教興國的背景出現。自1996年開始至2007年，根據統計中國已經出現50多座大學城，除了是為了提高高等教育入學率而發展出來的辦學模式外，更是地方政府期許能夠帶來商業、房地產業與科技產業的土地開發模式。本研究從地租理論及租隙理論的角度出發，來說明地方政府土地開動發的動力主要是源於對土地租隙的追求，而對土地租隙的追求在地方政府角色轉變之下可能導致尋租行為的產生，影響了政府的行為決策與社會利益的最大化。本文以廣州大學城為例，從大學城選址於新納入行政區的番禺區、以及將集體土地國有化的徵地行為，來說明地方政府對於土地增量的渴求。以及大學城在建設、開發到運行後的過程中，地方政府利用強大的行政資源來獲取土地開發所帶來的財政收入與利得。

Since the economic reform and open-up in 1978, China’s central administration has transferred executive powers to lower levels of government, and the system of paid land use has been established. The local government thus became more powerful and more interested in urban land development. In the historical setting, the local government precipitates a 'economic man' character to think deeply how to promote competitiveness of city, and how to manage and use limited land resources. The beginning of large-scale land use type of local government is the Economic development zone. The problem with the Economic development zone are that waste of arable land､inefficient of industrial area､make a illegal land expropriation. For these reasons the central government has started to govern and rectify the Economic development zone from 1992 to 2003 .Until 2003 the reorganize was effective, there were more than half of them were been canceled and indicated that the Economic development zone of China enter a normal stage. At the same time, because knowledge- economy age and wanted to encourage country by technology and the education , another large-scale land use type tower to second and third industrial appeared in China , it was called collage town. From 1996 to 2007 there are more than fifty collage city in China. Except to raise the enrolment ratio of collage student , it also can produce business market､real estate market and technological industrial market for local government .This paper tries to discuss the rent-gap seeking is the reason why the local government want to development land, and rent-gap seeking could be lead to rent seeking when the local government transform his role, and it also could be affect the policy decision of the local government , and max the interest of society . This paper takes Guangzhou City’s college town for example to explain how the local government wants to increase the land by setting up college town and confiscate land. And how the local government obtain state revenue by building､develop and working college town.