吴光芸 马明凯

关键词：政策扩散;土地增减挂钩;策域融合

摘 要：以公共政策扩散理论为视角，对中央及地方政府出台的有关土地增减挂钩政策文本进行梳理分析，对政策扩散的诱因、路径及机制进行阐释。研究发现，土地增减挂钩政策在推广过程中受到问题、诉求双重扩散诱因的影响，扩散路径在中央与地方、地方与地方之间呈现出时间上的“S”型曲线及空间上的响应、引导、辐射的扩散模式，央地政府的纵向互动使政策实现了策域融合。土地增减挂钩政策在试点过程中诞生了多种创新形态，形成了指标周转及“地票”两大模式，对政策的市场化改革探索也已进入平缓期。在从精准扶贫到乡村振兴有效衔接与转型过程中，与精准扶贫实现策域融合的土地增减挂钩政策如何融入到乡村振兴战略中去，将成为政策进一步创新扩散的主要方向。

中图分类号：F320文献标志码：A文章编号：1001-2435（2021）05-0148-10

Research on the Diffusion Inducement， Path and Mechanism of Land Increase/Decrease Linking Policy from the Perspective of Innovation Diffusion

WU Guang-yun， MA Ming-kai（Center for Anti-corruption， Nanchang University， Nanchang 330031， China）

Key words： policy diffusion; land increase and decrease link; policy domain fusion

Abstract： From the perspective of the diffusion theory of public policy， this paper sorts out the texts of the land increase and decrease linking policy issued by the central and local governments， and explains the inducement， path and mechanism of the policy diffusion. The study found that influenced by the problem and demands in the process of popularization， the effect of diffusion path of the land increase or decrease linking policies demonstrates an “S” type curve from the perspective of time and a model of response， guide and radiation between central and local governments and between the local governments from the perspectives of space. The longitudinal interaction between the central and local government makes policies integrated with the region. In the pilot process， the policy of linking the increase and decrease of land has produced a variety of innovative forms， forming two major modes of index turnover and “dipiao”， and the exploration of market-oriented reform of the policy has also entered a gentle period. In the process of effective connection and transformation from targeted poverty alleviation to rural revitalization， how to integrate the land increase and decrease policy linked to targeted poverty alleviation into the rural revitalization strategy will become the main direction of further policy innovation and diffusion.

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作為农村的基础和保障性资源，土地尤其是耕地的利用和保护一直是三农问题的焦点，坚守耕地和永久基本农田保护红线再一次被写进2020年的中央一号文件。改革开放以来，在以地谋发展模式下，经济发展对建设用地需求量不断提升，在偏紧的建设用地指标约束下，建设用地的庞大需求与耕地保护之间形成了难以平衡的矛盾，地方政府迫切需要建设用地的供应来谋取一方发展。基于平衡二者的考虑，国土资源部于2008年下发了《城乡建设用地增减挂钩试点管理办法》，在提出“农村建设用地减少与城市建设用地增加相挂钩”的城乡建设用地增减挂钩政策内涵同时，也明确了政策的实施方案和基本要求。……