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<section style="background-color: rgb(255, 255, 255);box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;overflow: hidden;font-size: 14px;box-sizing: border-box;"><section class="" style="display: inline-block;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: top;width: 4em;height: 4em;border-radius: 50%;background-image: url("http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mj04IOVeAiclOCQkb4PFMlgAdtz1icCj2eCJ0z2FicIKThXdYoYEH7LQdwT0guaQHUlIY6u3fYny5nDQ/0?wx_fmt=png");background-position: center center;background-repeat: no-repeat;background-size: cover;box-sizing: border-box;"><section class="" style="width: 100%;height: 100%;overflow: hidden;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mj04IOVeAiclOCQkb4PFMlgAdtz1icCj2eCJ0z2FicIKThXdYoYEH7LQdwT0guaQHUlIY6u3fYny5nDQ/0?wx_fmt=png" style="max-width:100%;" /></section></section><section style="width: 100%;margin-left: 1.2em;margin-top: -1.2em;box-sizing: border-box;"><section style="float: left;white-space: nowrap;overflow: hidden;display: inline-block;vertical-align: middle;height: 2em;margin-left: 1em;border-bottom-left-radius: 1em;border-left: 1px solid rgb(25, 55, 136);border-bottom: 1px solid rgb(25, 55, 136);max-width: 85% !important;box-sizing: border-box;"><section class="" style="margin-left: 1.5em;line-height: 1.5;padding-right: 0.5em;font-size: 11px;color: rgb(56, 30, 5);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">点击蓝字关注公众号</p></section></section><section style="float: left;width: 5%;margin-left: -1px;box-sizing: border-box;"><section style="width: 6px;height: 6px;margin-top: 1.82em;border-radius: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section><section style="clear: both;box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(25, 55, 136);padding: 10px;box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="color: rgb(56, 30, 5);box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">深圳市规划国土发展研究中心高级工程师、注册城市规划师林强<span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;"></span><span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">在《规划师》2017年第9期撰文，指出</span><span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">保障公共基础设施用地是半城市化地区规划实施的重要内容，而利益分配规则的设计则是规划实施成功与否的</span><span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">关键。文章以深圳为例，通过总结农村集体土地的空间特征与规划实施效果，对半城市化地区规划实施效果欠佳的原因进</span><span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">行分析，提出清晰的土地产权、明确的利益分配规则、合理的成本分担和补偿激励机制是加强半城市化地区规划实施的关键。</span><span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">此外，文章还结合深圳市土地整备的政策实践，围绕地籍重划、留用地安排、规划条件确定、公共基础设施用地分摊和激</span><span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">励等政策要点对半城市化地区规划实施的政策设计进行讨论。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;font-size: 13px;box-sizing: border-box;"><section class="" style="width: 100%;height: 5px;background: -webkit-linear-gradient(left, rgb(25, 55, 136), rgba(255, 247, 234, 0)) white;box-sizing: border-box;"></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="font-size: 12px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[关键词]半城市化地区；规划实施；土地整备；利益共享；深圳</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[文章编号]1006-0022(2017)09-0035-05　</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[中图分类号]TU981　</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[文献标识码]B</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[引文格式]<span style="letter-spacing: 0px;box-sizing: border-box;">林强．半城市化地区规划实施的困境与路径——基于深圳土地整备制度的政策分析 [J]．规划师，2017(9)：</span></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">35-39．</p></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/EVcgDUQMvkkynS3PcEogGnM56bias8v5v9MTu9FyetbtVH5ibicqNVWgJn7sjsxs8mmADiaLiaLXPA0F7VZxdWWBSBQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section class="" style="background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">一  <span style="letter-spacing: 0px;line-height: 1.45;box-sizing: border-box;"></span> </strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">用地形成与空间特征<span style="letter-spacing: 0px;box-sizing: border-box;"></span></strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="line-height: 1em;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;transform: rotate(0deg);width: 1em;height: 1em;padding: 0.2em;border-width: 0.14em;border-style: solid;border-color: rgb(25, 55, 136);background-color: rgb(254, 255, 255);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section><section style="display: inline-block;vertical-align: middle;width: 100%;height: 0.14em;margin: 0px -1em;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: middle;width: 1em;height: 1em;padding: 0.2em;border-width: 0.14em;border-style: solid;border-color: rgb(25, 55, 136);background-color: rgb(254, 255, 255);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section></section><section class="" style="padding: 0px 0.5em;margin: -0.14em 0px -0.21em;box-sizing: border-box;"><section class="" style="border-width: 1px;border-style: solid;border-color: rgb(25, 55, 136);box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">建市以来，深圳开展了两次土地城市化运动。<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">第一次是 1992 年，原特区内的罗湖、福田、南山和</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">盐田四区推进农村城市化，通过统一征用土地，将约</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">300km2 的农村集体土地一次性征为国有土地。第二</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">次是 2004 年，原特区外的宝安、龙岗两区推进农村</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市化，通过土地统转，将原特区外约1600km2的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">农村集体土地一次性转为国有土地。此后，深圳成为</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">名义上没有农村的城市。但是由于城市化征地和转地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">过程中经济关系没有理顺、补偿不到位，约 400km2</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的土地仍然由农村集体掌控和使用，主要分布在原特</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">区外的宝安、龙岗等地区。在高度城市化的深圳，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">这些农村集体土地与国有土地相互交错在一起，由</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">于城市化的动力和机制不同，形成“半城半乡”的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">独特空间形态。半城市化地区 农村集体土地主要有</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">以下特征。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="letter-spacing: 0px;box-sizing: border-box;">大部分土地产权不清晰，与法定图则契合</span><span style="letter-spacing: 0px;box-sizing: border-box;">度低</span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">农村集体掌控和使用的约 400km2 土地中，近<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">76%的土地存在征地转地遗留问题和权属纠纷。由于</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">产权不清晰、利益关系复杂，部分土地游离于规划管</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">理之外，在经济利益驱动下成为违法建设的高发区，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">加剧了土地的无序使用。深圳已基本实</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">现法定图则全覆盖，但从规划实施率看，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">农村集体土地与法定图则的契合度不足</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">50%，大部分土地的开发利用与规划要</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">求不符，农村集体土地成为规划实施的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">薄弱地区(图1)。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-align: center;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0miahibpViaib2xRH7hD54IZkawpo4Mhw35xa04m1p53kt2ic3uHb8s8gFfbS3TJ1asXmA8ZfNywwmx5lqg/0?wx_fmt=jpeg" style="max-width:100%;" /></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）<span style="letter-spacing: 0px;box-sizing: border-box;">公共基础设施欠账多，公共服务</span></strong><strong style="letter-spacing: 0px;box-sizing: border-box;">水平低</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">经分析，农村集体土地中超过35%<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的用地规划为道路、学校、医院和绿地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">等公共基础设施用地。由于大量规划确</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">定的公共基础设施用地无法落实，导致</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">农村集体土地公共服务水平较低。公共</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">基础设施“欠账多、落地难”成为普遍</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">问题，不仅影响农村集体土地的利用效</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">率，也制约其价值提升。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="text-decoration: none;box-sizing: border-box;">（三）</span></strong><strong style="letter-spacing: 0px;box-sizing: border-box;">土地畸零和空间碎片化，难以</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">有效开发</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">经过两次土地城市化和多次项目征<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地，农村集体土地呈现畸零、分散和碎</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">片化的特征，难以有效开发利用。由于</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">该类用地与国有土地相互交错分布，也</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制约了国有土地的开发，在空间形态上</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">形成“拼贴”景观。此外，快速城市化</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">带来土地增值和价值显化，但是由于产</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">权不清晰和权益不完整，农村集体土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">无法直接进入市场，形成“政府用不了、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">村民用不好、市场无法用”的土地开发</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">困境</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。</span></p></section></section></section></section></section><section class="" style="line-height: 1em;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;transform: rotate(0deg);width: 1em;height: 1em;padding: 0.2em;border-width: 0.14em;border-style: solid;border-color: rgb(25, 55, 136);background-color: rgb(254, 255, 255);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section><section style="display: inline-block;vertical-align: middle;width: 100%;height: 0.14em;margin: 0px -1em;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: middle;width: 1em;height: 1em;padding: 0.2em;border-width: 0.14em;border-style: solid;border-color: rgb(25, 55, 136);background-color: rgb(254, 255, 255);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/EVcgDUQMvkkynS3PcEogGnM56bias8v5v9MTu9FyetbtVH5ibicqNVWgJn7sjsxs8mmADiaLiaLXPA0F7VZxdWWBSBQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: middle;padding-right: 6px;box-sizing: border-box;"><section style="margin: 0px -6px -9px auto;border-right: 2px solid rgb(13, 0, 21);border-top: 2px solid rgb(13, 0, 21);height: 16px;width: 16px;border-bottom-color: rgb(13, 0, 21);border-left-color: rgb(13, 0, 21);box-sizing: border-box;"></section><section class="" style="background-color: rgb(25, 55, 136);padding: 0px 6px;font-size: 19px;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">二</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">规划实施困境分析</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(33, 71, 215);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">产权不清晰导致交易成本太高，</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">影响土地资源的流动和配置</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">产权和交易制度是要素配置的重要<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">内容</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">，明确的产权和清晰的交易制度</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">是土地要素流动与配置的前提。首先，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">由于农村集体土地产权不清晰，其交易</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">和配置的成本太高，使土地资源缺乏流</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">动性，进而无法形成有效供应。其次，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">由于农村集体土地难以有效配置到最优</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">使用者，农村集体土地的利用效率低于</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。此外，由于产权不清晰，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">农村集体土地无法纳入“一书两证”规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划管理中，使法定图则在农村集体土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用途管制中失效，影响了规划实施。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">现行规划实施机制具有收益排他</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">性，农村集体参与积极性不高</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">农村集体土地规划实施一般分为<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">“征收土地—转变用途—供应土地”三</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">个环节。首先是征收土地，集体土地被</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">征收为国有土地，土地所有权发生变更；</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">其次是转变用途，农地转变为建设用地，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">并依据法定图则确定用途和开发强度，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">是规划实施的关键环节，同时伴随土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">价值提升；最后是供应土地，政府将建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">设用地使用权让渡到第三方，通过显化</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">土地价值带来出让收益。在征地环节，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">由于土地使用权变更，农村集体被排除</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">在土地收益分配之外，因此无法分享规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划实施带来的土地增值</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。一方面，按</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">照规划实施有利于提高土地利用效率，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">显化土地价值，但由于土地收益分配规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">则存在排他性，农村集体参与规划实施</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的积极性不高；另一方面，由于农村集</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">体土地存在规划管控之外的非农化利用</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">现象，给农村集体获取土地收益提供了</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">路径</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）<span style="letter-spacing: 0px;box-sizing: border-box;">成本负担与收益补偿机制缺位，</span><span style="letter-spacing: 0px;box-sizing: border-box;">农村集体土地利用开发不均衡</span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">城市规划不仅带来空间形态的改<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">变，还对土地价值产生重大影响</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"> 。一</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">方面，由于土地用途变更和容积率提高，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市规划带来土地增值；另一方面，因</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">为公共利益需要对部分土地进行开发限</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制和用途管制，城市规划可能造成土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">贬值</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"> 。因此在规划实施中，成本负担</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">与收益补偿机制非常重要。就深圳而言，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规划区内的农村集体土地被分为两类：</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">一类是规划为居住、商业等经营性用途、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">具有增值潜力的土地；另一类是规划为</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">绿地、道路、学校等公益性用途、无法</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">实现增值的土地。由于规划用途的差别</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">带来了土地价值差异，往往规划为经营</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">性用途的土地被农村集体广泛接受，规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划实施效果较好；而规划为公益性用途</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的土地被农村集体排斥，规划实施效果</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">较差，由此造成了农村集体土地开发利</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用的不均衡。</span></p></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/EVcgDUQMvkkynS3PcEogGnM56bias8v5v9MTu9FyetbtVH5ibicqNVWgJn7sjsxs8mmADiaLiaLXPA0F7VZxdWWBSBQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section class="" style="background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">三 </strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">土地整备的政策路径与制度设计<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(156, 94, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">半城市化地区规划实施的难点，是<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">在农村集体土地上的公共利益实现。因</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">此，需要建立一种相容性的激励机制，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">在优先保障公共利益和公共基础设施用</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地的同时，维持或增加农村集体的收益，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">提高其参与规划实施的积极性。要实现</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">上述目标，笔者认为政策设计中必须具</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">备三个要素：清晰的土地产权、明确的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">利益分配规则及合理的成本分担和补偿</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">激励机制。2015 年，深圳市出台《土</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地整备利益统筹试点项目管理办法》，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">尝试通过土地整备解决半城市化地区规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划实施难题，保障公共基础设施建设，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">并取得了一定的效果。土地整备就是将</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">原来空间无序、不符合规划的土地，结</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">合规划实施要求进行土地边界重划和产</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">权关系调整，满足公共基础设施项目的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用地需求。笔者将结合该政策的关键制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">度设计，围绕半城市化地区规划实施的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">路径安排进行讨论。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">地籍重划，结合法定图则进行</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">农村集体土地确权</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">土地整备不仅需要在高密度、产权<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">不清的集体土地上腾挪出公共基础设施</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的用地空间，同时需赋予农村集体土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">清晰的产权，让其进入市场流通并显化</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">价值，减少规划实施阻力。因此，地籍</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">重划和土地确权是土地整备的基础。而</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地籍重划和土地确权的依据，就是具有</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">技术理性和公共政策属性的法定图则。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">根据政策规定，土地整备区内可结</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">合规划实施要求，按照一定规则给农村</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">集体安排留用地。该做法将规划实施和</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">土地确权相结合，以法定图则为基础进</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">行地籍整理和土地重划，腾挪出道路、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">绿地、学校等公共基础设施用地，同时</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">重新划定农村集体的土地边界并赋予其</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">发展权。地籍重划和土地确权不同于传</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">统规划实施中土地征收的做法，其实际</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">上是赋予农村集体在规划区内新的发展</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">权，并将留用地作为农村集体参与土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">收益分配的载体。这一过程中，农村集</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">体的合法外用地通过确权纳入到合法用</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地管理中，实现由产权不清晰的“半国</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">有土地”向产权清晰的国有土地转变。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">虽然重划后农村集体土地面积有所减</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">少，但是由于土地权能的提升、配套设</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">施的完善及土地开发条件的改善 (包括</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">使用功能提升和地块形状规整等 )，农</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">村集体土地价值得到提升(图2)。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-align: center;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0miahibpViaib2xRH7hD54IZkawpyicSLuialWxBic3cEyFCyib4QiaQwgmquwfvpGXI19wQncfd1tSBFgpJKFg/0?wx_fmt=jpeg" style="max-width:100%;" /></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">通过安排留用地，赋予农村集体土<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地发展权，以分享土地增值收益和城市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">化红利，有助于厘清各方土地权益，降</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">低土地交易成本，同时也通过明晰产权</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">稳定农村集体的发展预期，避免“公地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">悲剧”的出现。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">利益共享，综合运用用地、规划、</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">地价手段调节农村集体利益</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">现行的规划实施机制是将农村集体<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">土地和房屋按照一定价格进行征收，将</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">其排除在土地收益分配之外，农村集体</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">参与规划实施的积极性不高。因此，必</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">须转变现行规划实施的利益分配规则，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">将土地收益分配由政府获得较多转变为</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">政府和农村集体共享，将规划实施由“利</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">益排他”转变为“利益相容”  ，实现</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规划实施中政府和农村集体的双赢。在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">土地整备中，政府的主要收益是公共基</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">础设施用地收储和农村集体缴交的地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">价收入；农村集体的主要收益则是留用</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地及其发展权，其中的核心是留用地的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">选址、规模、规划控制指标及需缴交的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地价。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: middle;padding: 0px 6px;box-sizing: border-box;"><section class="" style="border-bottom: 2px solid rgb(33, 71, 215);padding: 0px 10px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">1.留用地的选址</p></section><section style="margin-top: -4px;box-sizing: border-box;"><section style="float: left;width: 6px;height: 6px;margin-left: -6px;background-color: rgb(33, 71, 215);box-sizing: border-box;"></section><section style="float: right;width: 6px;height: 6px;margin-right: -6px;background-color: rgb(33, 71, 215);box-sizing: border-box;"></section><section style="clear: both;box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">土地整备中留用地要求集中成片，<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">具体位置以法定图则为依据，由政府和</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">农村集体协商确定。留用地一般在法定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">图则确定的经营性用地地块中选址。这</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">种做法有助于整合农村集体土地，使其</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">按照规划要求进行布局和安排，改变土</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地空间分散、畸零和碎片化的现状，以</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">利于开发利用；同时，通过协商确定选</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">址也体现了农村集体的诉求，减少后续</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规划管理的阻力，有利于规划实施。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: middle;padding: 0px 6px;box-sizing: border-box;"><section class="" style="border-bottom: 2px solid rgb(33, 71, 215);padding: 0px 10px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">2.留用地的规模</p></section><section style="margin-top: -4px;box-sizing: border-box;"><section style="float: left;width: 6px;height: 6px;margin-left: -6px;background-color: rgb(33, 71, 215);box-sizing: border-box;"></section><section style="float: right;width: 6px;height: 6px;margin-right: -6px;background-color: rgb(33, 71, 215);box-sizing: border-box;"></section><section style="clear: both;box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">留用地规模是影响农村集体收益的<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">重要因素，也是各方博弈的焦点。因此，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">留用地规模核算规则是土地整备政策设</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">计的重要内容。农村集体留用地的确定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">由两部分组成：一部分是历史上形成的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">各种“合法用地”，按照等土地面积确</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">定留用土地；另一部分就是农村集体实</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">际使用的“合法外土地”，按照不超过</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">20%的比例核算确定留用地。上述两部</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">分共同构成了留用地的规模。这样的政</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">策设计，一是体现了政策公平性，如对</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">于合法用地较多的农村集体多安排留用</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地，对于违法用地较多的农村集体则少</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">安排留用地，避免“老实人吃亏”；二</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">是实现了权益归一，将各类合法用地及</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">合法外用地，通过土地整备归一为一种</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">性质和权利，即国有土地，但农村集体</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">享有土地使用、处置和收益的权利。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: middle;padding: 0px 6px;box-sizing: border-box;"><section class="" style="border-bottom: 2px solid rgb(33, 71, 215);padding: 0px 10px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">3.留用地的规划控制指标</p></section><section style="margin-top: -4px;box-sizing: border-box;"><section style="float: left;width: 6px;height: 6px;margin-left: -6px;background-color: rgb(33, 71, 215);box-sizing: border-box;"></section><section style="float: right;width: 6px;height: 6px;margin-right: -6px;background-color: rgb(33, 71, 215);box-sizing: border-box;"></section><section style="clear: both;box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">土地整备涉及多方利益，需要不断<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地协商谈判和进行利益平衡。为提高各</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">方参与的积极性，难免需要结合各方诉</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">求和协商结果对法定图则进行修改——</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">通过调整留用地规划控制指标提升土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">价值，使土地整备从“零和博弈”变为“正</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">和博弈”。因此，留用地用途和容积率</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的确定以法定图则为基础，在满足技术</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要求的同时，充分考虑各方利益诉求。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">在土地用途确定方面，主要以法定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">图则的主导功能为依据，结合农村集体</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">诉求和项目实施性等因素进行。在容积</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">率确定方面，主要体现两方面原则：一</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">是技术理性，符合相关规范与技术标准，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">满足规划管理的基本要求；二是政策导</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">向，引导农村集体多贡献公共基础设施</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用地，保障公共利益。因此，土地整备</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">建立了基于“技术理性 + 政策导向”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的容积率管理规则。具体来说，留用地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">容积率由基础容积率和转移容积率构成</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">( 图 3)。基础容积率以《深圳城市规划</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">标准与准则》为基础，结合密度分区、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">周边道路、轨道站点和地块规模等因素</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">修正确定，体现规划管理的基本要求；</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">转移容积率则体现政策导向，首先划定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">公共基础设施用地贡献率基准，农村集</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">体土地中用于公共基础设施建设的用地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">面积超出基准的部分，按照一定规则核</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">算建筑量并转移至留用地，通过提高留</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用地开发强度鼓励农村集体多贡献公共</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">基础设施用地。这样的政策设计不仅能</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">够满足容积率管理中的技术要求，而且</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">能够增加公共基础设施用地供应，实现</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">农村集体利益与公共利益、政府公共政</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">策的“激励相容”。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-align: center;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0miahibpViaib2xRH7hD54IZkawpZyvNJ9NbY6licDyG4t1PYHqZ8PP20Smd0eAZ3Ih8ahrKBJxWjUtLtibw/0?wx_fmt=jpeg" style="max-width:100%;" /></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: middle;padding: 0px 6px;box-sizing: border-box;"><section class="" style="border-bottom: 2px solid rgb(33, 71, 215);padding: 0px 10px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">4.留用地的地价</p></section><section style="margin-top: -4px;box-sizing: border-box;"><section style="float: left;width: 6px;height: 6px;margin-left: -6px;background-color: rgb(33, 71, 215);box-sizing: border-box;"></section><section style="float: right;width: 6px;height: 6px;margin-right: -6px;background-color: rgb(33, 71, 215);box-sizing: border-box;"></section><section style="clear: both;box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">地价也是影响农村集体留用地价值<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的重要因素。深圳市的农村集体土地一</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">般采用基准地价。基准地价属于政策性</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地价，其价格往往低于市场地价，因此</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">不能反映土地的真实价值，由于地价偏</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">低，农村集体往往会产生提高留用地开</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">发强度的冲动。土地整备中建立了容积</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">率—地价联动的利益调节规则，通过地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">价手段调节农村集体的留用地价值；以</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">容积率密度分区为基础，结合公共基础</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">设施用地贡献率等因素，确定留用地的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">建筑权益基准；建筑权益基准以内的建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">筑面积，采用政策性的优惠地价计收；</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">超出建筑权益基准的建筑面积，根据累</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">进方式征收地价，提高土地开发成本，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">调节项目开发利润(图4)。以建筑权益</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">基准为基础，通过分段计收地价的方式，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">对超出权益基准部分的建筑面积征收累</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">进地价，解决留用地开发倒逼规划容积</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">率调整难题。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0miahibpViaib2xRH7hD54IZkawpDaW69Fm0txicFXYtv5l5Y6Tv2p0W4JoXmryTz4CiaH48TOTHg3bylEdQ/0?wx_fmt=jpeg" style="max-width:100%;" /></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">成本分担和补偿激励，划定“底线”，</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">刚性控制公共基础设施用地</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">公共服务质量的高低是城市地区与<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">农村地区的重要差别</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。笔者认为，半</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市化地区规划实施的重点是加强公共</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">基础设施建设，增加公共服务供给。就</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规划实施而言，规划区内的公共基础</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">设施用地需由农村集体贡献和承担，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">因此成本分担和补偿激励机制设计尤</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">其重要。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">首先是成本分担机制，结合法定<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">图则中公共基础设施用地的控制要求，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">土地整备中约定农村集体需贡献不少于</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">35%的土地用于公共基础设施建设。通</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">过在土地整备区内划定“底线”，刚性</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控制公共基础设施用地并由政府储备，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">这样的政策设计不仅保障了法定图则中</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">公共基础设施的用地需求，而且形成了</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">成本负担机制。一方面，农村集体土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">因为环境的改善和配套的完善，土地价</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">值有所提升；另一方面，根据“受益者</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">付费”原则，农村集体应共同承担公共</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">基础设施用地，并按一定比例贡献土地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">作为“对价”，用以换取公共服务水平</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">和土地价值的提升。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">其次是补偿激励机制，主要体现在<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">留用地容积率核算和地价计收上。在容</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">积率方面，通过建立容积率转移机制，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">将多贡献给政府的公共基础设施用地按</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">照一定规则核算建筑面积，并转移至留</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用地上，给予容积率奖励；在地价方面，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">主要结合公共基础设施用地贡献率等因</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">素确定建筑权益基准，对于公共基础设</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">施用地贡献率较高的项目，在地价上予</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">以减免。通过上述措施，形成了公共基</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">础设施用地的补偿和激励机制，对于农</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">村集体土地用于公共基础设施建设的行</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">为进行奖励，以增加公共基础设施用地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">供给。</span></p></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/EVcgDUQMvkkynS3PcEogGnM56bias8v5v9MTu9FyetbtVH5ibicqNVWgJn7sjsxs8mmADiaLiaLXPA0F7VZxdWWBSBQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section class="" style="background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">四 </strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">结语<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(156, 94, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">保障公共基础设施用地是半城市化<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地区规划实施的重要内容，而利益分配</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规则的设计则是规划实施成功与否的关</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">键。深圳土地整备政策通过三个关键政</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">策设计加强法定图则在农村集体土地中</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的实施：一是以法定图则为目标，通过</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地籍重划安排留用地，明确农村集体的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">土地发展权，减少规划实施阻力；二是</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">基于法定图则的控制要求，通过建立土</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">地收益分配规则，明确农村集体留用地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的位置、功能、开发强度及地价，综合</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">运用用地、规划、地价等政策手段调节</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">农村集体利益，实现农村集体利益与政</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">府公共政策的“激励相容”；三是落实</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">法定图则中公共基础设施用地的控制要</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">求，通过建立成本分担和补偿激励机制，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">一方面刚性控制公共基础设施用地，另</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">一方面对农村集体贡献土地用于公共基</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">础设施建设的行为给予容积率和地价奖</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">励，使农村集体在规划实施中从被动接</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">受转变为主动参与。这一过程中，法定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">图则既是规划的蓝图，又是协商的基础。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">当然，土地整备政策自身仍然存在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">许多不足，如农村集体组织的内部分配</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规则不清晰、市场力量的介入和参与不</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">足、资金的平衡和滚动考虑不够，以及</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规划的公平性等问题，都需要逐步完善</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">和优化。总的来说，深圳土地整备政策</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">是半城市化地区加强规划实施的有益探</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">索，以法定图则为基础，将规划实施由</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">以政府为主转变为政府与农村集体共同</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">协商实施，将土地收益分配由“利益排</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">他”转变为“利益相容”，将“半城半乡”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">各自发展转变成各方共建城市，为加强</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城乡统筹、实现同地同权提供了政策经</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: 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