走向精准治理的国土空间规划——一个基于土地运营的分析框架

TERRITORIAL PLANNING TOWARDS PRECISE GOVERNANCE:AN ANALYTICAL FRAMEWORK BASED ON LAND OPERATION

20世纪90年代以来,通过土地运营实现的土地资本化,使得地方政府建构了“以地谋发展”模式,成为推动我国经济结构跃迁的重要动力。由于空间规划与土地运营关联研究局限于土地价值、用地布局和土地供给时序、规划实施路径等片段,缺乏整体系统性思考,“为规划而财政”“为财政而规划”等不合理现象频发且缺乏有效回应。本文尝试建立一个基于土地运营的空间规划分析框架,通过分析土地运营的方式以及空间规划的作用路径,立足生态文明建设新阶段土地运营转型趋势,提出国土空间规划应对的思考。

Since the 1990s,land capitalization through land operation has enabled local governments to establish a“land-driven development”model,which has become an important driving force for the transition of China’s economic structure.In view of the studies on the interplay between spatial planning and land operation,there is a lack of overall systematic thinking,as most of them focus on fragmented elements like land value,land use layout,land supply sequence,and planning implementation path.As a result,unreasonable phenomena,such as“financial investment to attract planning”and“planning for financial interests”,have frequently arisen,to which effective responses are required.On this basis,through an analysis on the way of land operation and the acting path of spatial planning,this paper endeavors to establish a spatial planning analysis framework based on land operation and further proposes corresponding measures from the perspective of territorial planning in line with the trend of land operation transformation in the new stage of ecological progress advancement.