增减挂钩节余指标有偿交易在国土空间规划中的特征、应用与思考

Characteristics,Application and Thinking of Paid Transaction of Increase-Decrease Hook Surplus Indicators in Territorial Spatial Planning

国土空间规划用地指标分配本质上是省际、府际、县市发展权的博弈,为促进节约集约用地实现高质量发展,在国土空间规划编制过程中推进“增减挂钩”“增存挂钩”。本文梳理回顾增减挂钩及指标交易政策的演变,剖析不同类型用地指标的差异;并针对指标交易从经济人、社会人、城市人等不同利益视角进行分析,结合撤村并居等政策现实实施情况,通过分析增减挂钩节余有偿交易在市场运行过程中出现的正负外部性特征,以及对我国已执行的跨省、跨市、城市内部增减挂钩节余指标的交易规模、交易金额、交易主体等交易情况进行研究,提出在增减挂钩及有偿交易过程中,需重点关注不同城市的文化、经济、社会、空间等发展阶段要素,合理引导市场正向交易。

The allocation of land use index in national territorial spatial planning is a game of development right among provinces and cities.In order to actively promote economical and intensive land use and to achieve highquality development,the increase-decrease hook is promoted in the process of territorial spatial planning.This paper reviews the evolution of increase-decrease linkage and index trading policy,and analyzes the differences of various land use index.Then the index transaction is analyzed from the perspective of economic man,social man and urban man.Combined with the actual implementation of the policy,this paper analyzes the positive and negative externalities of paid transaction of increase-decrease hook surplus indicators in the course of market operation,and analyzes the trading across provinces,cities and cities in China from the aspects of transaction scale,amount and subject.It is proposed that cities with different development power should pay attention to four factors namely cultural,economic,social and spatial development stage in the process of paid transaction,so as to reasonably guide the market forward positive effects by excessive marketization.