“两规合一”导向下的土地供应计划研判机制初探——以上海的实践为例

A Study on Determination Mechanism of Land Supply Plan under the Orientation of the Coordination of Urban Planning and Land Use Planning:A Case Study of Practice in Shanghai

近年来,土地利用规划和城市规划的"两规"衔接成为趋势。除了总规层面之外,"两规"体系中亦需要微观层面、近期建设层面和规划实施层面的衔接,而土地进入市场的供应环节就是其中一个关键。应当从土地入市这个环节加强城市规划指导力度,开展城市规划指导下的土地供应年度计划预审和具体地块入市研判工作,既解决目前土地供应缺乏规划宏观控制和时序控制的短板问题,同时也成为实施城市总体规划的一项重要政策工具。这项工作主要包括3大类内容:合规性预审、合理性预审和入市方案预审。合规性预审主要审查供应地块是否符合已有法定规划。合理性预审是指按照规划导向,意向地块在这个时点上进行出让是否合理,是否会带来负外部性、是否能够在最大程度上发挥土地的价值。最后,入市方案的审查是对土地入市的具体方式(招标、拍卖、挂牌)进行分析判断。

In recent years, the coordination of urban planning and land use planning become a trend. In addition to the overal planning, it must be strengthened in the microscopic aspects of detailed planning, in the recent aspects of construction planning, and in the some aspects of implementation of planning. The land supply is one of the key points. This paper argues that urban planning should be strengthened in the stage of the land into the market, especially the review in advance on annual land supply plan under the guidance of urban planning and the planning analysis on a single block of land into the market. Such actions wil not only solve the land supply problems on the lack of planning macro-control and timing control, but also become an important policy tool for the implementation of the overal urban planning. This work includes three categories of content. Firstly, the comprehensive verification according to statutory planning should be done. Secondly, it is necessary to be seriously considered on the reasonableness about the sale of land on schedule in accordance with planning guidance, especially whether it will maximize the value of the land or bring negative externalities. Finally, it must choose one way from the three land sale types of bidding, auction and listing, which should be studied and determined before the land sale.