土地政治下的偏離者──政策遺緒與天津市政府行為研究（1982－2018）

Deviation in Land Financing Politics: Policy Legacy and Local Government's Behavior of Tianjin

房地產開發導向能否適用於討論所有中國大陸城市的發展模式？既有文獻多強調中國大陸地方政府扮演如同企業家型的角色，透過城市經濟增長下所創造的土地交易價值而獲利。天津在2002年後的土地新政基本上依循著上述的思維而展開，卻在官僚及一般民眾間引發了相當程度的反彈。本文試圖印證，在政績導向的機會主義考量下，天津地方官員在1980年代選擇維穩重於成長的發展道路，造成天津在房地產市場與管理結構的特殊性；其次，此一政策遺緒進一步限制了天津土地新政的開展。天津的發展經驗背後反映出，從政績機會主義的角度切入，可以豐富對於成長機器的討論。在城市經濟轉型的過程中，城市既有的政策遺緒亦將對制度的改變施加力量。 Can we use the pattern of “property-led growth” to generalize urban development programs in China? The existing literature that attempts to explore the dynamics of urban development in China has been made predominantly on the basis of the “local state entrepreneurship” model, which takes that the growth of cities is characterized by inter-scalar competition and big projects motivated by real estate speculation. From this perspective, urban housing demolition and relocation in Tianjin is a typical case and the city's new land policies symbolize the mayor's ambition to move the city forward as China's northern economic center. However, people were annoyed by the new deals that stipulated by the Tianjin administration. New policies over land reform had been modified after the mayor resigned from office. This article challenges the traditional thinking about land politics in China and exemplifies that Tianjin's experience significantly highlights difficulties faced by the local governments when they are confronted with the ‘path dependency' and “political tournament” dilemma in economic transition.