国家治理视角下的空间规划与土地发展权:挑战与出路

Territorial Spatial Planning and Land Development Rights from the Perspective of State Governance:Challenges and Solutions

土地发展权对区域均衡发展与共同富裕具有重要意义,而空间规划是配置土地发展权的重要工具。本文首先介绍了我国超大治理规模约束条件与上下分治的治理模式下,通过空间规划体系界定的体制场域和社会场域的土地发展权构建逻辑。其次,分析了国家多元能力建构中的空间规划与土地发展权演进,并就当前国土空间规划实践中土地发展权配置流转面临的实践挑战展开论述。最后,本文提出了国家治理视角下的空间规划与土地发展权改革思路,分别是面向高效治理的央地职能分工与地方土地发展权的适度灵活性,土地发展权的均衡化配置与市场化流转机制。

Land Development Rights(LDRs)play an essential role in the pursuit of balanced regional development and common wealth of China,and territorial spatial planning is a key tool for defining the LDRs.This paper introduces the Vertically Decentralized Authoritarianism of China,and the logic of establishing LDRs in the institutional domain and social domain defined by territorial spatial planning.Then,it examines the evolution of spatial planning and LDRs in China and analyzes the challenges of LDRs allocation and transaction in the spatial planning practice.It concludes with the policy implica-tions of reforming territorial spatial planning and LDRs from two aspects:division of central and local functions and more discretion in LDRs of local governments,and the balanced allocation of LDRs and marketized transfer of LDRs.