地方政府工业用地低价出让行为经济合理性分析——基于广东省地级市层面的实证研究

以广东省为例,利用2007-2012 年地级市层面的面板数据,采用面板数据因果检验及回归分析等方法,实证分析了地方政府工业用地低价出让财政激励的内在逻辑。同时,从财务和价值两个维度,对地方政府工业用地低价出让行为的经济合理性进行了判断。研究结果表明:① 地方政府工业用地低价出让具备引资功能,通过土地要素换资本要素的方式能够获取投资的流入;② 资本净流入对地方政府税收和商住用地出让金增长具有明显的正向作用,投资引入将导致地方政府预算内、外财政收入的增长;③ 工业用地低价出让行为普遍具有财务上的合理性,并非不惜成本的非理性竞争;④ 工业用地低价出让行为不具备价值上的合理性,价值损失可视为地方政府以土地要素换资本要素这种引资竞争方式的成本。基于研究结论,论文建议为纠正地方政府工业用地低价出让行为可从两方面入手:一是调整中央-地方政府间的财权-事权结构;二是改变以财政收入增速的相对绩效为重点的政绩考核方式。

Analysis of the Economic Rationality of Local Government's Downtick of the Industrial Land: Evidence from the Municipalities in Guangdong Province

Take the panel data of Guangdong province from 2007 to 2012 as an example, the article used the method of panel data causality test and regression analysis to analyze the internal logic between downtick of industrial land and finance incentive. Furthermore, the article made a judgment on the economic rationality of local governments' downtick of industrial land from two dimensions of finance and value. The result shows that: 1) The behavior of downtick in industrial land has the function of attracting investment, which can be fulfilled by the exchange of land elements and capital factors. 2) Net capital inflow has positive effect on the tax of local government and transaction price of commercial and residential land, and the investment will lead to the growth of government revenues both inside and outside of the budget. 3) Local governments' downtick of industrial land generally has the financial rationality but irrational competition. 4) Local governments' downtick of industrial land is not generally rational on the value. The value loss can be considered as the cost of the exchange of land elements and capital factors. Based on the conclusions, to avoid the downtick of industrial land, the paper suggests two adjustments in policies: one is to adjust the structure of financial-administrative power between the central and local government, the other is to change the performance evaluation method which focuses on the growth of fiscal revenues.