城市人口规模与政府供地结构:纳入民生设施用地的新视角  

City Population Size and Government Land Supply Structure:A New Perspective of Land Use for Public Facilities

作　　者：徐航天 李思萱 杨曦 XU Hangtian;LI Sixuan;YANG Xi(School of Economics and Trade,Hunan University;School of Economics,Xiamen University)

机构地区：[1]湖南大学经济与贸易学院,410079 [2]厦门大学经济学院,361005

出　　处：《经济研究》2025年第2期124-140,共17页Economic Research Journal

基　　金：国家自然科学基金面上项目(72173038,72373124)的资助。

摘　　要：践行“以人民为中心”的城市发展理念,核心在于保障和改善民生。本文从这一角度出发,分析了地方政府在城镇建设用地功能配置上的决策逻辑。地方政府以非市场化(或半市场化)方式为主出让民生设施用地,以市场化方式为主出让工业、居住和商服等其他生产生活用地。在建设用地总量受指标约束的情况下,二者相互替代,并分别通过提升宜居性和提高实际工资水平改善居民福利。本文构建了包含民生设施用地的政府土地配置决策模型,并利用2007-2020年城市人口增长和土地出让数据开展研究,发现在研究期内,我国常住人口增长越快的城市,人均新增用地供给约束越强,其民生设施用地出让占比越高,而工业和居住等用地的出让占比越低。这一方面是由于民生设施用地的容积率相比其他用地更低,且难以随土地供给约束的加强而向上调整;另一方面是因为随着城市人口规模扩大,公共服务的人均供给水平面临压力,居民对城市基本公共服务的需求关注度上升,因此人均民生设施用地规模存在难以向下调整的特征。本文将民生设施用地纳入政府供地结构的分析对于我国优化土地配置效率、促进城市高质量发展和改善民生具有启示意义。As China transitions to a stage of high-quality development,the demand for public services continues to increase.Concurrently,urban development strategies are evolving from a focus on economic growth to a more balanced approach that integrates economic development with the provision of public services.Land supply is crucial for supporting urban public services and forms a key component of urban planning across cities.Unlike other production factors like labor and capital,land is immobile across regions and its supply is constrained by geographical and policy factors.In recent years,due to strict controls on the expansion of urban construction land,optimizing land use strategies has become vital for balancing public service provision with the growing demands of residents.How should public service demand be incorporated into the government's land supply decisions?How does the expansion of urban population size affect the government's land use strategies?We analyze both theoretically and empirically the impacts of city size on the government's land use strategies.First,we develop a general equilibrium model that explains how the government of a city allocates land between public and other usage(industrial and residential uses)to maximize local residents'welfare,which introduces objective functions at the consumer,producer,and government levels,integrating the equilibrium conditions of product and factor markets.Under the constraint of land supply,land for public facilities and that for industrial and residential purposes are mutually substitutable,each improving residents'welfare by enhancing livability and increasing real wages,respectively.The model demonstrates that holding the construction land area of a city constant,if the city size increases,the local government allocates a larger share of land for public service usage.The supply-side mechanism is based on the rigid constraints of upward adjustments in the floor area ratio(FAR)of land for public facilities,making it difficult to increase in line with the grow

关 键 词：城市规模 民生设施用地 供地结构 公共服务 

分 类 号：F299.2[经济管理—国民经济]