改革开放以来珠江三角洲基层非正规土地利用实践与制度创新——以东莞市长安镇为例

doi:10.13249/j.cnki.sgs.2017.12.006

地理科学 ›› 2017, Vol. 37 ›› Issue (12): 1831-1840.doi: 10.13249/j.cnki.sgs.2017.12.006

改革开放以来珠江三角洲基层非正规土地利用实践与制度创新——以东莞市长安镇为例

黄颖敏¹(), 薛德升¹(), 黄耿志²

1.中山大学地理科学与规划学院,广东广州 510275
2. 广州地理研究所广东省地理空间信息技术与应用公共实验室,广东广州510070

收稿日期:2017-05-11 修回日期:2017-08-19 出版日期:2017-12-20 发布日期:2017-12-20
作者简介:
作者简介：黄颖敏（1986-）,男,江西赣州人,博士研究生,主要从事城市地理与城市规划研究。E-mail:huangyingmin693@163.com
基金资助:
国家自然科学基金国际与地区合作项目（41320104001）;中央高校基本科研业务费专项资金中山大学项目（17lgjc04）;国家自然科学基金面上项目（41771137）资助

The Local Informal Land Practice and Institutional Innovation in the Pearl River Delta Since 1978:A Case Study of Chang’an Town in Dongguan City

Yingmin Huang¹(), Desheng Xue¹(), Gengzhi Huang²

1.School of Geography and Planning, Sun Yat-Sen University, Guangzhou 510275, Guangdong,China
2.Guangdong Open Laboratory of Geospatial Information Technology and Application, Guangzhou Institute of Geography, Guangzhou 510070, Guangdong, China

Received:2017-05-11 Revised:2017-08-19 Online:2017-12-20 Published:2017-12-20
Supported by:
International Joint Program of National Natural Science Foundation of China（41320104001）;Fundamental Research Funds for the Central Universities of China,Sun Yat-sen University（17lgjc04）;National Natural Sciences Foundation of China(41771137).

摘要/Abstract

摘要：

21世纪初,在对非正规经济研究的二元主义、新马克思主义和新自由主义理论解释基础上,出现了批判管治主义理论,重点关注国家权力与制度对非正规性产生的影响。基于该视角,以东莞市长安镇为例,运用质性研究方法,分析了改革开放先行区的珠江三角洲,其基层非正规土地利用实践的产生、表现及其与制度创新之间的关系。研究发现：改革开放以来,在国家土地制度缺失、正规土地管理制度颁布和实施阶段,以及省级政府主导的土地制度创新阶段,非正规土地利用实践经历了被政府鼓励、包容和默许及正规化的过程。部分非正规土地利用实践成为制度创新的根源。土地制度的演变经历了由乡村基层“自下而上”式向地方政府“自上而下”式推动的转变,在演变过程中具有非正规性特征,并服务于各个时期的城市与经济发展需求。未来的研究中,应更多的关注“自下而上”的制度创新和地方实践。

关键词: 非正规土地利用实践, 制度创新, 城市非正规性, 地方政府, 珠江三角洲

Abstract:

Urban informality is a one of important research agendas in Global South, it is also considered as a new urban theory in 21^st. The informal sector has been focused by scholars since 1973, and three broads approaches have been founded, that the dualism approach, Neo-Marxism approach and neoliberalism approach.This paper used the critical governance approach, which founded in 21^st and emphasized on state power and institution at determining informality. Based on this approach, Chang’an Town of Dongguan City in the Pearl River Delta was choose, to research the prevailing informal phenomenon in cities of China— the informal land use practice, its emergence roots, pattern of manifestation and the relationship with institutional innovation since 1978 with qualitative methods. Our research findings include that at the period of lack of national land institution, the state and government actively supports and promotes the informal land practice when it produces new strategic knowledge. At the period of national land institution be founded, the local government utilizes and tolerates the informal land practice when it serves development. At the period of institutional innovation driven by local government, the informal land practice was overcame by government and the informal land be formalization when important economic and political interests are prevailing and more legal certainty is needed. The informal land practice and informal land institution are the seeds of formal land institution in PRD, when it produces new strategic knowledge, and serves urban development, the state and local government would make it formalization, and become institutional innovation.The mode of land institutional change in PRD has been turned form above to below. Some informal practice may be prohibited, and the informal institution would be fade, but we should pay more attention on informal practice and informal institution from below in the future.

Key words: informal land practice, institutional innovation, urban informality, local government, the Pearl River Delta

中图分类号:

C912.8

黄颖敏, 薛德升, 黄耿志. 改革开放以来珠江三角洲基层非正规土地利用实践与制度创新——以东莞市长安镇为例[J]. 地理科学, 2017, 37(12): 1831-1840.

Yingmin Huang, Desheng Xue, Gengzhi Huang. The Local Informal Land Practice and Institutional Innovation in the Pearl River Delta Since 1978:A Case Study of Chang’an Town in Dongguan City[J]. SCIENTIA GEOGRAPHICA SINICA, 2017, 37(12): 1831-1840.

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行动主体	主要包括
国家	中央政府、国土资源部
地方政府	广东省政府、东莞市政府、长安镇政府以及各级规划、国土、“三旧”改造等部门
企业	外资企业与民营企业,如“三来一补”企业与模具工厂
村组集体	村民、村组（社区）集体

开发主体与模式	数量（个）	企业数（家）	面积（hm²）
镇级	3	44	257.32
村级	25	372	537.93
村级与外商合作	2	14	112
村组级	10	339	198
村组与私人合作	3	70	39.87
组级	10	281	140
组级与私人合作	3	42	25.33

	正规土地制度缺失阶段（1978~1986年）	绕过正规土地制度阶段（1986~2005年）	地方政府主导的土地制度创新阶段（2005年至今）
主要矛盾	国家、地方政府、乡村基层与土地制度之间的矛盾	经济发展需求与正规土地制度之间的矛盾	非正规土地利用实践与地方政府之间的矛盾
非正规土地利用实践的作用者	国家、地方政府、乡村基层	地方政府、乡村基层	乡村基层
非正规土地利用实践的表现形式	改变土地利用性质,出租、转让土地	改变土地利用性质,出租（半合法化）、转让土地	改变土地利用性质（部分合法化）,出租（合法化）、转让土地（合法化）
非正规土地制度	非正规土地转让协议（口头）	农村土地股份合作制
制度创新的作用者		村民、村集体	广东省政府
正规土地制度	1954年《宪法》、家庭联产承包责任制	《土地管理法》	《集体建设土地流转办法》、《“三旧”改造政策》

改革开放以来珠江三角洲基层非正规土地利用实践与制度创新——以东莞市长安镇为例

The Local Informal Land Practice and Institutional Innovation in the Pearl River Delta Since 1978:A Case Study of Chang’an Town in Dongguan City

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