城市土地既是一种重要的资源，也是一种重要的资产。现阶段，随着社会经济的进一步发展、城市化进程的加快、城市土地需求的日益增加，与城市土地的有限供给相对而言，城市土地的短缺问题越来越严重。不仅如此，在城市土地的使用和管理过程中，也暴露出一系列土地问题，诸如土地囤而不用、政府违规批地、地价大幅上涨等等，影响了人们的正常生活。对于城市土地问题的解决，如何从经济学的视角进行分析，并力图寻求管理制度上的创新与安排，将是一个重要而有意义的研究。 论文运用制度经济学、西方经济学、城市经济学、土地经济学、管理学等学科的基本理论，界定了城市土地管理制度的基本内容，认为城市土地管理制度是由城市土地产权制度、城市土地组织管理制度、城市土地供给管理制度、城市土地需求管理制度、城市土地供求均衡管理制度（城市土地市场管理制度、城市土地价格管理制度）构成的制度体系，具有整体性、动态性、开放性的特点。在此基础上，分别针对各个制度内容自身的缺陷与不足进行了分析，并结合当前相关的城市土地问题，对制度安排或制度创新提出了对策建议。全文共分九个部分： 第一部分为导论。该部分阐述了本文的研究背景、目的和意义，对国内外研究现状进行了述评，说明了本文的研究思路与方法及创新与不足。 第二部分为城市土地管理制度研究的理论基础。在介绍城市土地的含义和特征的基础上，对城市土地管理的内涵进行了说明，重点介绍了产权理论和制度及制度变迁理论，最后对本文研究的城市土地管理制度的内涵进行了新的界定。 第三部分为中国城市土地管理制度环境的因素分析。该部分从制度性环境方面（相关法律规则、其他与城市土地管理相关的正式规则、非正式规则）详细分析了中国城市土地管理制度的环境因素。 第四部分为城市土地产权管理制度创新。城市土地产权管理制度是城市土地管理制度的基础。本部分首先分析了我国城市土地产权结构，接着在城市土地产权制度的演变基础上指出产权制度当前存在的缺陷与不足。笔者对其原因进行了系统地分析与探讨。接着对城市土地产权管理存在的障碍与原因进行了探讨。提出了产权管理制度创新的对策，一方面要对我国当前的城市土地产权制度进行改革，另一方面要建立以产权保护为基础的城市土地管理模式。 第五部分为城市土地管理组织制度创新。首先运用制度经济学的基本理论，分析了我国土地管理组织制度演变的历程。然后对当前我国的省级以下土地垂直管理和国家土地总督察制度进行了评价，一方面，这种制度实现了权力的上收、促进监督机制的进一步完善，是对原有体制的一种突破。另一方面，制度本身仍存在缺陷，监督机制实施中缺乏有效性，并且中央政府与地方政府、地方政府与当地土地管理部门、土地管理部门与其他相关部门之间博弈问题使得土地管理体制面临进一步改革的必要，提出建立土地管理的分级授权管理制度。 第六部分为城市土地供给管理制度创新，第七部分为城市土地需求管理制度安排。两部分内容力图从城市土地供给和需求的视角，针对当前城市土地“以需定供、数量不限”的管理模式提出新的看法，即在重视城市土地供给管理的基础上，加强需求管理，实现“以供给引导需求、引入市场”的管理模式，以促进城市土地的高效利用。然后对城市土地供给管理、需求管理制度创新与安排提出了设想。 第八部分为城市土地供求均衡管理制度安排。主要对城市土地市场管理及地价管理过程中的问题进行分析，并提出了制度完善的政策建议。 第九部分为总结性结论。指出新制度经济学是中国城市土地管理制度创新研究的理论基础；对中国城市土地管理制度内涵的新的界定是制度透视的前提；城市土地产权管理制度是城市土地管理制度的首要基本内容；土地管理组织制度的完善是城市土地管理制度创新的组织保障；城市土地供给与需求管理开辟了城市土地管理制度新的视角；城市土地市场管理与地价管理是城市土地管理制度内容的延伸。

Urban land is an important kind of resources and assets. With the development of social economy and urbanization and the increase of demand for urban land, the problem of urban land shortage compared with its limited supply is becoming more and more serious. Furthermore, some problems associated with land management effect the normal life of people. Among them are land hoarding, governments’ deregulation of examining and approving land, land price’s sudden rise, and so on. It is an important and significative study on how to solve the land problems from economic angle of view and carry on institution’s innovation. Based on the theory of institution economics, western economics, urban economics, land economics and management science, the paper confirms the essential content of urban land management institution. The paper points out that urban land management institution is an institutional system which consists of urban land property rights institution, management institution of urban land organization, management institution of urban land supply, management institution of urban land demand, management institution of urban land market and management institution of urban land price. And urban land management institution takes on integrated, dynamic and open feature. Then this paper indicates the shortcoming of every institution included in urban land management system and puts forward relevant institution innovation’s suggestions. The paper includes 9 parts. Part 1 is the introduction of the background, the purpose and meaning, literature review, innovations and shortcomings of the study. Part 2 is the theoretical basis of the study, which comprises the signification and character of urban land, the meaning of urban land management, property rights theory, institution and its innovation theory and the connotation of urban land management institution. Part 3 is the analysis of Chinese urban land management institution surroundings: institutional surroundings (relevant laws, other relevant formal rules and informal rules). Part 4 is the innovation study of urban land property rights institution, which analyzes the property rights structure of Chinese urban land, introduces the change of urban land property rights, points out its shortcomings and reason and gives some suggestion to reform current urban land property rights and build the land management mode of protecting property rights. Part 5 is the study on management institution innovation of urban land organization, which uses the basic theory of institution economics and analyzes the change of management institution of urban land organization in China, evaluates its advantages and disadvantages. The current institution restricts local governments’ power and perfects supervising mechanism to a great extent. On the other hand, it still owns some shortcomings. The paper puts forward some suggestions to reform current management system and form a graduation and authorization management model in the administration of the urban state-owned land property rights. Part 6 is the innovation study of urban land supply management institution. Part 7 is the institution study of urban land demand management. From angle of view of urban land supply and demand, the paper brings forward the concept of supply-guided demand management to realize land’s effective using and the conception of institutions innovation. Part 8 is the institution study on the balance of urban land supply and demand, which includes management institution of urban land market and management institution of urban land price. Part 9 is the conclusion. Institution economics is the theoretical basis of the study on Chinese urban land management institution; The connotation of Chinese urban land management institution is the premise of analyzing the institution; The property rights is the chief content of urban land management institution; The perfection of management institution of urban land organization is organizational security of urban land management institution innovation; The management of urban land supply and demand exploits a new study angle of view of urban land management institution; The management of urban land market and management institution of urban land price are extend of urban land management institution’s content .