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<section class="xmteditor" style="display:none;" data-tools="gulangu" data-label="powered by gulangu"></section><section style="line-height: 2;letter-spacing: 1.5px;padding-right: 8px;padding-left: 8px;font-size: 15px;font-family: Optima-Regular, PingFangTC-light;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.6914063" src="http://mmbiz.qpic.cn/mmbiz_png/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNgTmXzlfqOSFAicZtNv37OfeAOgic1zy3o3mYZ8xO4FgrdIfos0T05yyQ/640?wx_fmt=png" data-type="png" data-w="1024" style="vertical-align: middle;box-sizing: border-box;"></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">自2007年以来，围绕存量用地再利用，从广东开始，中国开展了城镇低效用地再开发工作，并经历了<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">广东省先行先试、省级试点探索、全国全面推广<span style="color: rgb(171, 43, 43);box-sizing: border-box;">三个阶段</span>。</span></strong>在存量规划的探索中，城镇低效用地再开发作为盘活存量的重要手段已受到广泛重视。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">因此，本文选择城镇低效用地再开发的佛山、广州、深圳、上海等10个具有代表性的试点城市，总结当前再开发的总体情况与主要特征，分析现实挑战，探讨在存量规划时代城镇低效用地再开发的工作方式、方法与方向。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: left;margin-right: 0%;margin-bottom: 30px;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 5px;padding-left: 50px;box-sizing: border-box;"><section style="margin: 10px 0% -55px;transform: translate3d(-50px, 0px, 0px);-webkit-transform: translate3d(-50px, 0px, 0px);-moz-transform: translate3d(-50px, 0px, 0px);-o-transform: translate3d(-50px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 70px;height: 80px;vertical-align: top;overflow: hidden;background-position: 50% 50%;background-repeat: no-repeat;background-size: contain;background-attachment: scroll;padding-left: 11px;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNctHVOoYUIoQbzCyRzicSWMv3PJNwJ3GXMlnSlfwdpbTZkHNOt1XdMcA/640?wx_fmt=gif");box-sizing: border-box;"><section style="margin-top: 25px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: justify;color: rgb(255, 255, 255);font-size: 17px;box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">01</strong></p></section></section></section></section><section style="transform: translate3d(-5px, 0px, 0px);margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-top: 3px;padding-bottom: 3px;border-width: 1px 1px 0px;border-radius: 0px;border-style: none none dashed;border-color: rgb(62, 62, 62);box-sizing: border-box;"><section style="text-align: justify;font-size: 16px;color: rgb(55, 80, 114);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">城镇低效用地再开发的总体情况</strong></p></section></section></section></section></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">尚未统一的内涵外延</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">尽管国家有关部门将该项工作称为<strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">“城镇低效用地再开发”</span></strong>，但各地由于开展时间及侧重点的不同，所采用的名称也有所差异。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">当前主要称法有<strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">“城镇低效用地再开发”、 “三旧”改造和“城市更新”</span></strong>三种，一些城市即使命名一致，其内涵外延也不尽相同。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">从范围界定上看，建设用地中的布局散乱、利用粗放、用途不合理、建筑危旧的城镇存量建设用地是必选范围，而闲置废弃、不符合安全生产和环保要求等存量建设用地则被选择性地纳入再开发范围。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">从内容界定上看，无外乎整治、改善、重建、活化、提升等方面。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="text-align: center;"><img class="rich_pages" data-backh="372" data-backw="558" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNb3ElzHpbB5scibPBacXY9HWSjNKiaSJcGpZALc3N6mfFTKSGh0xBhMkA/0?wx_fmt=jpeg" data-ratio="0.66640625" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNb3ElzHpbB5scibPBacXY9HWSjNKiaSJcGpZALc3N6mfFTKSGh0xBhMkA/640?wx_fmt=jpeg" data-type="jpeg" data-w="1280" style="width: 100%;height: auto;"></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">基本一致的工作目标</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">目前，各地针对城镇低效用地再开发，在市场取向、多方参与、利益共享、公平公开等工作原则的基础上，就改善人居环境、优化产业结构、完善城市功能、提升节约集约用地水平已达成统一认识。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">此外，部分城市结合自身定位及发展特征，提出针对性改造目标，比如上海强调要激发都市活力、增强城市魅力，广州注重传承历史文化、保障社会公共利益，南京明确要优化调整工业布局，沈阳则提出改善城镇基础设施和公共服务设施，推动民生和公共事业发展，充分发挥土地对城镇化健康发展的支撑作用等。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">因地制宜的改造类型</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">目前，<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">城镇低效用地再开发主要存在以下几种划分方式：</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="margin-bottom: -2.25em;box-sizing: border-box;"><section style="padding: 10px;background-color: rgb(242, 242, 242);box-sizing: border-box;"><section style="text-align: left;padding: 10px;box-sizing: border-box;" powered-by="gulangu"><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">一是</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">按照再开发对象划分，</span></strong>如；多数城市采用旧城镇、旧厂矿（或旧厂房）、旧村庄的“三旧”用地类型；类似地，广义上的上海城市更新也主要包括旧区改造、工业用地转型、城中村改造三大类。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">二是</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">根据再开发程度进行划分，</span></strong>如广州分为全面改造和微改造；深圳分综合整治类、功能改变类、拆除重建类三大类；佛山则在深圳的基础上又增加了生态修复类、局部加建类和历史文化保护类。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">三是</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">依据再开发主体划分</span></strong>为政府收储改造、原国有土地使用权人自行改造、原集体土地所有权人自行改造、市场主体收购改造等类型。</p></section></section></section><section style="width: 2.25em;height: 2.25em;margin-left: auto;border-bottom: 5px solid rgb(171, 43, 43);border-right: 5px solid rgb(171, 43, 43);transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;"></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: left;margin-right: 0%;margin-bottom: 30px;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 5px;padding-left: 50px;box-sizing: border-box;"><section style="margin: 10px 0% -55px;transform: translate3d(-50px, 0px, 0px);-webkit-transform: translate3d(-50px, 0px, 0px);-moz-transform: translate3d(-50px, 0px, 0px);-o-transform: translate3d(-50px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 70px;height: 80px;vertical-align: top;overflow: hidden;background-position: 50% 50%;background-repeat: no-repeat;background-size: contain;background-attachment: scroll;padding-left: 11px;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNctHVOoYUIoQbzCyRzicSWMv3PJNwJ3GXMlnSlfwdpbTZkHNOt1XdMcA/640?wx_fmt=gif");box-sizing: border-box;"><section style="margin-top: 25px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: justify;color: rgb(255, 255, 255);font-size: 17px;box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">02</strong></p></section></section></section></section><section style="transform: translate3d(-5px, 0px, 0px);margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-top: 3px;padding-bottom: 3px;border-width: 1px 1px 0px;border-radius: 0px;border-style: none none dashed;border-color: rgb(62, 62, 62);box-sizing: border-box;"><section style="text-align: justify;font-size: 16px;color: rgb(55, 80, 114);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">试点城市再开发工作的主要特征</strong></p></section></section></section></section></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">内在动因各异</span></strong></p></section></section></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;">结合各地经济社会发展水平，面临的主要土地问题，摸清各自的内在动因是进一步推进城镇低效用地再开发的重要前提。<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">从动因类型上可大致分为4种类型：</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="margin-bottom: -2.25em;box-sizing: border-box;"><section style="padding: 10px;background-color: rgb(242, 242, 242);box-sizing: border-box;"><section style="text-align: left;padding: 10px;box-sizing: border-box;" powered-by="gulangu"><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（1）</span></strong><strong style="box-sizing: border-box;">老工业区更新型，</strong>以上海和沈阳为代表。上海作为传统的老工业基地，工业用地比重接近三成，其中有大量用地的产出和投入效率低下，因而存量工业用地盘活成为上海存量挖潜的重要对象。类似地，沈阳也是老工业基地，传统企业创新不足、历史遗留问题未有效解决、项目准入机制不完善等原因导致大量低效工业用地形成。<br style="box-sizing: border-box;"  /></p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（2）</span></strong><strong style="box-sizing: border-box;">建设用地紧缺型。</strong>新增建设用地不足已成为当前绝大多数城市实施再开发的首要动因，其中深圳最具典型性。深圳于2005 年完成城市化转地后，成为全国第一个没有农村建制、改变土地城乡二元制的城市。“十三五”期间，深圳市可用新增建设用地不到30 km2，远不能满足城市社会经济发展的需求，因而由新增向存量发展的模式转变成为其唯一选择。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（3）</span></strong><strong style="box-sizing: border-box;">产业结构调整型，</strong>如杭州。杭州主要将再开发与“腾笼换鸟”、淘汰落后产能等工作紧密结合，实施以“亩产效益综合评价”为基础的差别化要素配置政策，建立低效用地退出机制，倒逼企业进行技术改造和产业转型。<br style="box-sizing: border-box;"  /></p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（4）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">城市功能完善型，</span></strong>如武汉。武汉将“三旧”改造与功能区建设相结合，以改造为契机，有效推动了规划的实施，先后启动汉正街中央服务区、二七沿江商务区、武昌滨江商务区、四新会展商务区等重点功能区建设，完善城市相关产业功能，优化城市空间结构。</p></section></section></section><section style="width: 2.25em;height: 2.25em;margin-left: auto;border-bottom: 5px solid rgb(171, 43, 43);border-right: 5px solid rgb(171, 43, 43);transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;"></section></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">规划模式多样</span></strong></p></section></section></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">当前城镇低效用地再开发试点城市形成了多样的规划模式，具体包括：</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（1）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">单层级规划体系</span></strong>（图1），<strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">以上海为例。</span></strong>上海采用“先评估、后规划”的规划编制流程，公共要素是城市更新评估的重要内容，城市更新单元是城市更新规划的基本单位。</p></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-backh="205" data-backw="483" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNDfibO5ZQ8lKnknibr0SsedCCLITpeADlYWfYrnX6fHfo9dK4WCJvc3bg/640?wx_fmt=jpeg" data-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNT9vaOfKzK3ydEpCvRAm9OCRNTavXWjPdSqz5rr9989OHhAuzkST3Lw/0?wx_fmt=jpeg" data-ratio="0.4244306" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNT9vaOfKzK3ydEpCvRAm9OCRNTavXWjPdSqz5rr9989OHhAuzkST3Lw/640?wx_fmt=jpeg" data-type="jpeg" data-w="483" style="vertical-align: middle;box-sizing: border-box;width: 100%;height: auto;"></section></section><section style="transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;" powered-by="gulangu"><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;"><section style="box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（2）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">双层级体系</span></strong>（图2），<strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">大致可分为两种形式“宏观+微观”型和“宏观+中观”型。</span></strong>前者以杭州、南京等城市为例，直接在专项规划的基础上编制地块改造方案。后者以深圳、武汉等城市为例，构建“专项规划+单元规划”的规划体系。前后两者的本质区别在于是否划定并编制再开发单元规划。城市更新单元制度打破了以行政单位或者地块为改造单元的局限性，实现对零散土地的整体规划和统筹考虑。</p></section></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-backh="482" data-backw="424" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNftHhzx4YiagLgAary9UbyElFJJ0XUhNRlbHicSqlRs3HCWFUwltCjxYw/640?wx_fmt=jpeg" data-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNEibxZxthO9MjFOClg5k8poa63aSd0sXDkxxokkIPaRsl3oJcTKer9SA/0?wx_fmt=jpeg" data-ratio="1.1367925" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNEibxZxthO9MjFOClg5k8poa63aSd0sXDkxxokkIPaRsl3oJcTKer9SA/640?wx_fmt=jpeg" data-type="jpeg" data-w="424" style="vertical-align: middle;box-sizing: border-box;width: 100%;height: auto;"></section></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（3）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">三层级体系</span></strong>（图3），<strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">以佛山与广州为代表。</span></strong>主要区别在于中观统筹协调层面，佛山重点对拆除重建类城市更新项目制定城市更新单元计划；而广州则结合城市总体发展战略，划定城市更新片区，制定片区实施计划，并对纳入城市更新片区实施计划的区域编制片区策划方案。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-backh="492" data-backw="443" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNVQATj3Z6JaMsUfef6XKzWgd2jYyLyFkoibgSjCia5SrTV7xZnibicCPhmw/640?wx_fmt=jpeg" data-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNcfQAxIribicoyxoexVBJotweIsMV9pl8OssBFbmHcURxxTukAPfjoB7Q/0?wx_fmt=jpeg" data-ratio="1.1106095" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNcfQAxIribicoyxoexVBJotweIsMV9pl8OssBFbmHcURxxTukAPfjoB7Q/640?wx_fmt=jpeg" data-type="jpeg" data-w="443" style="vertical-align: middle;box-sizing: border-box;width: 100%;height: auto;"></section></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">激励措施丰富</span></strong></p></section></section></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;">147号文从鼓励原国有土地使用权人进行改造开发、积极引导城中村集体建设用地改造开发、鼓励产业转型升级、优化用地结构、鼓励集中成片开发、加强公共设施和民生项目建设5个方面，明确完善激励机制的政策方向。在此基础上，地方采取的有关激励措施主要集中于征收补偿、成片改造、强度激励三个方面。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">在征收补偿方面，</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">以广州为典型。</span></strong>其一方面鼓励旧村改造采用先收购房屋后回购的方式实施补偿；另一方面，加大国有土地上旧厂改造收益支持，适当提高政府收储项目出让分成和一次性补偿的标准。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">在成片改造方面，</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">以广州、武汉和佛山为代表的城市提出了以土地置换为核心的解决方案。</span></strong>例如，佛山遵循“面积相近、价值相等、双方自愿、凭证置换”的原则，允许城市更新项目用地范围内、外地块之间的土地置换。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">在征收补偿方面，</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">以广州为典型。</span></strong>其一方面鼓励旧村改造采用先收购房屋后回购的方式实施补偿；另一方面，加大国有土地上旧厂改造收益支持，适当提高政府收储项目出让分成和一次性补偿的标准。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section></section><section style="text-align: left;margin-right: 0%;margin-bottom: 30px;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 5px;padding-left: 50px;box-sizing: border-box;"><section style="margin: 10px 0% -55px;transform: translate3d(-50px, 0px, 0px);-webkit-transform: translate3d(-50px, 0px, 0px);-moz-transform: translate3d(-50px, 0px, 0px);-o-transform: translate3d(-50px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 70px;height: 80px;vertical-align: top;overflow: hidden;background-position: 50% 50%;background-repeat: no-repeat;background-size: contain;background-attachment: scroll;padding-left: 11px;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNctHVOoYUIoQbzCyRzicSWMv3PJNwJ3GXMlnSlfwdpbTZkHNOt1XdMcA/640?wx_fmt=gif");box-sizing: border-box;"><section style="margin-top: 25px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: justify;color: rgb(255, 255, 255);font-size: 17px;box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">03<br style="box-sizing: border-box;"  /></strong></p></section></section></section></section><section style="transform: translate3d(-5px, 0px, 0px);margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-top: 3px;padding-bottom: 3px;border-width: 1px 1px 0px;border-radius: 0px;border-style: none none dashed;border-color: rgb(62, 62, 62);box-sizing: border-box;"><section style="text-align: justify;font-size: 16px;color: rgb(55, 80, 114);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">城镇低效用地再开发的现实挑战</strong></p></section></section></section></section></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="color: rgb(62, 62, 62);box-sizing: border-box;"> 政策瓶颈未突破</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">尽管试点城市尝试在再开发政策上做出突破创新，特别是期望通过激励政策推动再开发工作，但从实际效果来看成效并不明显，<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">主要体现在以下几点：</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;"><br  /></span></strong></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="margin-bottom: -2.25em;box-sizing: border-box;"><section style="padding: 10px;background-color: rgb(242, 242, 242);box-sizing: border-box;"><section style="text-align: left;padding: 10px;box-sizing: border-box;" powered-by="gulangu"><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（1）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">概念界定困难</span></strong>，究其原因主要在于：</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">数据上，</span></strong>低效用地识别过程中涉及的基础数据多且杂，涉及发改、经信、规划等各个部门，而主管该项工作的自然资源部门难以全面、实时、准确地掌握数据；</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">方法上，</span></strong>由于低效成因各样、涉及主体庞杂等原因导致不同类型的低效用地难以通过一套简单的指标及方法进行判定；</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">目标上，</span></strong>各个城市结合其历史特征、发展阶段等提出相应的改造目标，因此低效用地的概念必然存在地域上的差异性和空间上的动态性。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（2）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">准入门槛较高。</span></strong>当前各地制定了一系列优惠政策，但存在适用范围过窄、准入门槛过高的问题。</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">例如，</span></strong>允许通过协议方式出让土地，为土地权利人参与土地再开发利益分配提供了有效路径，但多数地区提出可适用协议方式的准入门槛仍较高。</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">例如，</span></strong>武汉针对旧城（棚户区）改造安置房用地及旧厂房改做教育、科研、创意设计、文化等用途的，允许协议出让方式供应土地。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（3）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">资金支持不够。</span></strong>资金是推动城镇低效用地再开发的关键，与新增建设用地相比，拆迁补偿、安置、建设成本较高。</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;">因此充分发挥社会资本的作用，引入多种融资渠道，提供财政、金融多方面资金支持是有效推进再开发工作的重要途径。</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;">当前，除武汉、佛山等少数城市以外，其他城市在税费优惠、融资模式创新等方面仍少有涉及。</p></section></section></section><section style="width: 2.25em;height: 2.25em;margin-left: auto;border-bottom: 5px solid rgb(171, 43, 43);border-right: 5px solid rgb(171, 43, 43);transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;"></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">规划统筹仍不足</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">城镇低效用地再开发作为一个复杂系统工程，涉及政府、权利人、市场等方方面面，必须有起统筹引领作用的顶层设计。<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">当前各地统筹规划的力度都还不够，具体表现为：</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="margin-bottom: -2.25em;box-sizing: border-box;"><section style="padding: 10px;background-color: rgb(242, 242, 242);box-sizing: border-box;"><section style="text-align: left;padding: 10px;box-sizing: border-box;" powered-by="gulangu"><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（1）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">从规划层级上看，</span></strong>在宏观统筹协调层面已编制有关城镇低效用地再开发专项规划的城市很少，规划已批准且在实施中的城市更是屈指可数，且多为项目层面的实施性规划，缺少市域层面的战略性规划进行总体统筹和协调。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（2）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">从规划编制流程上看，</span></strong>由于低效用地常常涉及控制性详细规划（简称“控规”，下同）调整的问题，必然会大大拉长再开发的运作周期。以上海为例，上海在更新评估报告的基础上，编制城市更新实施计划，如果更新评估报告未涉及控规调整，实施计划阶段提出控规调整需求的，必要时重新开展更新评估。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">（3）</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">从规划内容上看，</span></strong>现阶段城市由于单个项目出发，房地产项目主导等原因，导致再开发局部化、目标单一性明显，盲目追求经济效益的开发改造，往往忽视了生态、文化、景观等重要要素空间保护的需求。为追求项目的利润平衡，倾向于提高建设强度，不利于城市景观，并对基础设施建设产生了较大压力，严重影响了城市的品质。</p></section></section></section><section style="width: 2.25em;height: 2.25em;margin-left: auto;border-bottom: 5px solid rgb(171, 43, 43);border-right: 5px solid rgb(171, 43, 43);transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;"></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">制度体系不健全</span></strong></p></section></section></section><section style="color: rgb(55, 80, 114);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">但总体来看，城镇低效用地再开发的基本制度体系尚未建立。</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="margin-bottom: -2.25em;box-sizing: border-box;"><section style="padding: 10px;background-color: rgb(242, 242, 242);box-sizing: border-box;"><section style="text-align: left;padding: 10px;box-sizing: border-box;" powered-by="gulangu"><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">一是，</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">法律法规体系不完善。</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">一方面，</span></strong>未形成从政策指引到操作指南的一体化政策框架；<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">另一方面，</span></strong>目前各地制定的具体政策多涉及特定类型或地区，如城中村改造、棚户区改造、旧工业区升级改造等，而其他低效用地类型的政策尚未明确，从而导致已划定难实施的局面。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">二是，</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">管理制度体系未协同。</span></strong>当前各地再开发推进难的现实原因之一就是“条块”式分部门管理，且各部门在再开发项目审批和管理的程序中缺乏沟通和协调，行政效率低下，重复审批或批复矛盾等问题普遍存在。</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">三是，</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">配套制度创新不足。</span></strong>各地在再开发的配套制度建设方面，基本都涉及民主决策制、信息公开制、全程监管制、考核通报制等。</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;">此外，较为典型的配套制度较少，以上海实行的全生命周期管理和杭州、宁波等地建立新增建设用地计划指标分配与存量建设用地盘活挂钩的“增存挂钩”机制为主。</p><p style="text-align: justify;white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: justify;white-space: normal;box-sizing: border-box;">前者是在多部门协同管理的基础上，将城市更新建设计划、运营管理、物业持有、节能环保等要求纳入土地出让合同进行管理。后者是根据上一年度盘活存量建设用地规模，按照存量与增量3∶1比例核定新增建设用地计划指标额度，激励地方盘活存量建设用地。</p></section></section></section><section style="width: 2.25em;height: 2.25em;margin-left: auto;border-bottom: 5px solid rgb(171, 43, 43);border-right: 5px solid rgb(171, 43, 43);transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;"></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="text-align: left;margin-right: 0%;margin-bottom: 30px;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 5px;padding-left: 50px;box-sizing: border-box;"><section style="margin: 10px 0% -55px;transform: translate3d(-50px, 0px, 0px);-webkit-transform: translate3d(-50px, 0px, 0px);-moz-transform: translate3d(-50px, 0px, 0px);-o-transform: translate3d(-50px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 70px;height: 80px;vertical-align: top;overflow: hidden;background-position: 50% 50%;background-repeat: no-repeat;background-size: contain;background-attachment: scroll;padding-left: 11px;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNctHVOoYUIoQbzCyRzicSWMv3PJNwJ3GXMlnSlfwdpbTZkHNOt1XdMcA/640?wx_fmt=gif");box-sizing: border-box;"><section style="margin-top: 25px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: justify;color: rgb(255, 255, 255);font-size: 17px;box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">04</strong></p></section></section></section></section><section style="transform: translate3d(-5px, 0px, 0px);margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-top: 3px;padding-bottom: 3px;border-width: 1px 1px 0px;border-radius: 0px;border-style: none none dashed;border-color: rgb(62, 62, 62);box-sizing: border-box;"><section style="text-align: justify;font-size: 16px;color: rgb(55, 80, 114);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">思考与建议：存量规划时代城镇低效用地再开发的重要路向</strong></p></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">基于10个试点城市开展的城镇低效用地再开发情况来看，存在内涵认知不明确、规划体系形式多样、政策创新不足等特点。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">在存量规划时代，应将城镇低效用地再开发的工作重点聚焦于</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">完善目标内涵、落实规划先行、推动实施创新</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">等方面。</span></strong></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">完善目标内涵</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">改造目标上，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">一方面</span></strong>当前各地再开发目标缺乏与自身城市发展目标的紧密对接。当前正处于从增量规划转向存量规划的过渡时期，城镇低效用地再开发的重要性日益凸显。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">因此，如何将再开发的目标与国土空间规划的战略目标相统一，让再开发工作真正服务于规划实施，明确城市再开发的方向就成为下一步改造的首要任务。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">另一方面，</span></strong>在新时代生态文明建设的背景下，绿色城市更新将成为城市发展的重要方向。在此趋势下，各地应探索以城市生态环境优化为前提，以绿色低碳社区建设为主要单元，以基础设施的绿色化改造为重要环节的成本集约、功能复合、生态友好的新型城市更新模式。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.6640625" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNMOpn81e3DUzibIHDz2rsQohSPk6GiaoibD0gWdTfibU554H5fWSLWHV7fw/640?wx_fmt=jpeg" data-type="jpeg" data-w="1280" style=""></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;"><br  /></span></strong></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">内涵外延上，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">首先，</span></strong>明确低效用地的特点是低效率、低品质、不安全以及不合理利用，必须在此基础上进一步明晰城镇低效用地再开发的内涵外延。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">其次，</span></strong>城镇低效用地的内涵界定本质上就是城镇低效用地再开发的范围划定，建议拓展再开发的工作范围，关注直接影响城市品质提升、综合价值提高的各类空间，如城市重要景观廊道、产业功能区等，注重“点”“线”“面”相结合，制定全方位、多层次的战略布局。</p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">落实规划先行</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">建议以佛山和广州为范本，采用三级规划体系，加强各层级规划对城镇低效用地再开发的统筹引领作用。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">在宏观层面，主要起到目标调控作用，</span></strong>在对接市县级国土空间总体规划的基础上，明确中长期战略目标、时序安排、总体规模、实施策略等，并结合国民经济和社会总体规划，编制近期规划，对总体规模进行分解，进一步明确短期目标与重点任务。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: center;"><img class="rich_pages" data-backh="372" data-backw="558" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNic6GMjBpMRuJostgzuQnpHz9LR3Q2Wyrb3Ds34j1eyDwqVPhzzUR6ibA/0?wx_fmt=jpeg" data-ratio="0.6671875" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNic6GMjBpMRuJostgzuQnpHz9LR3Q2Wyrb3Ds34j1eyDwqVPhzzUR6ibA/640?wx_fmt=jpeg" data-type="jpeg" data-w="1280" style="width: 100%;height: auto;"></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">在中观层面，对接详细规划，主要起到统筹协调作用，</span></strong>划定再开发单元，既要落实上级规划要求，也要尽可能保证单元实施的可操作性与资金平衡，编制城镇低效用地再开发单元规划。在微观层面，明确项目内各个地块再开发细则，编制城镇低效用地再开发项目实施方案，包括地块改造方案、可行性研究报告、政策处理意见等。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）<span style="color: rgb(62, 62, 62);box-sizing: border-box;">推动实施创新</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">城镇低效用地再开发主要涉及到项目申报、单元划定、方案编制、项目审批、实施监管5个阶段，加强各阶段的政策创新，将有效推动再开发的顺利实施。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="text-align: left;letter-spacing: 0px;color: rgb(62, 62, 62);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（1）项目申报阶段</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">通过放宽协议出让的土地供应方式、补交地价优惠等方式，吸引权力主体或市场主体自下而上地申报再开发项目，并鼓励在项目内适当增加公益性用地规模。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.56171875" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNYzy2P74cfac5z1F8SZq2adm4ETcUpcYNOaibsCYSpc9icFz0bOeBzLfA/640?wx_fmt=jpeg" data-type="jpeg" data-w="1280" style=""></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">例如，对于原国有土地使用权人自行改造或吸纳市场主体合作改造，允许以协议方式取得土地使用权；对于原集体土地所有权人申请自行改造的，依法征收为国有土地，允许以协议方式供应给原集体土地所有权人，并根据不用情形，按新规划设计条件市场评估价格补缴一定比例的土地出让金等。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="text-align: left;letter-spacing: 0px;color: rgb(62, 62, 62);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（2）单元划定阶段。</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">一是</span></strong>将“三地”（边角地、夹心地、插花地）统筹纳入，允许按照等面积、等用途的原则，允许对再开发单元内地块或单元内外地块之间进行土地置换。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">二是</span></strong>推进“公私”搭配，在再开发单元内统筹公益性用地与盈利性用地的捆绑开发，相关部门应制定政策对项目给予运营税费等的减免、优惠，降低公益性项目融资难度和运营压力，努力实现盈利性项目分摊公益性项目成本，公益性项目提升片区价值的良性关系。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="text-align: left;letter-spacing: 0px;color: rgb(62, 62, 62);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（3）方案编制阶段。</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">一方面，</span></strong>借鉴已有的容积率奖励、容积率转移等政策，满足开发主体的利益需求。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.55078125" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNqKJGlJdmrfWURjQv9MN8JDicj34Ca9b3tyB5Q4mFnK8q4uXaV7TszHw/640?wx_fmt=jpeg" data-type="jpeg" data-w="1280" style=""></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;"><br  /></span></strong></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">另一方面，</span></strong>鼓励低效用地再开发中的土地混合利用，在符合生态环境效益、公共利益、用地结构平衡和景观协调等原则的前提下，可采用“主导用途”和“其他用途”概念，根据实际情况和科学论证设定各类性质用地中主导用途和其他用途的合理比例以及可混合用地兼容表，提高用地开发的灵活性。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="text-align: left;letter-spacing: 0px;color: rgb(62, 62, 62);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（4）项目审批阶段。</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">首先，</span></strong>坚持放管服结合，下放事权同时加强对项目实施的监督管理。同时，对低效用地再开发项目，设置专项审批通道，简化相关审批流程；</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">其次，</span></strong>建立城镇低效用地再开发项目信息公开制度，严格执行土地出让相关程序，规范土地市场秩序，涉及出让的必须集体决策、公示结果，确保改造开发过程公开、公平、公正。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="text-align: left;letter-spacing: 0px;color: rgb(62, 62, 62);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（5）实施监管阶段。</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">第一，</span></strong>提高参与主体的积极性，对市场主体，鼓励其参与再开发的土地一级开发整理，在返还实际投资额和财务费用的基础上，给予其投资回报；对政府，可将土地收益分成适当向区级政府倾斜，提高实施主管单位的积极性。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">第二，</span></strong>加强基础数据库和动态监控信息系统建设，做好再开发审核、项目实施、竣工验收等情况的标图入库，实行再开发项目的批后跟踪与全程动态监管。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="text-align: center;"><img class="rich_pages" data-cropselx1="0" data-cropselx2="558" data-cropsely1="0" data-cropsely2="313" data-ratio="0.66640625" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_jpg/KoH4xpDrnibANoNicOjC84c7wdBMRibNsWNAfHVibWsF6KbrFribCXz0biaM8mDSu6hsuDcveIWkOQlJ1ApmVcOUIyfQ/640?wx_fmt=jpeg" data-type="jpeg" data-w="1280" style="width: 558px;height: 372px;"></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;"></span></strong></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(171, 43, 43);box-sizing: border-box;">第三，</span></strong>建立低效用地考核和奖励机制。<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">一方面，</span></strong>建立低效用地开发利用考核指标体系，将再开发项目的实施纳入对应级别政府的绩效考核指标体系，对各级政府推进再开发工作进行量化考评和督察；</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">另一方面，</span></strong>探索低效用地开发利用奖励机制，对城镇低效用地再开发工作完成情况较好或超额完成任务的区可采取部分返还土地出让收入，用于基础设施、公共服务设施、产业升级等作为激励；实行“以存量换增量”、“改奖挂钩”的机制，新增建设用地指标应通过盘活存量建设用地获取，并将再开发工作纳入地方政府及相关部门的考核内容。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="font-size: 13px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">文章来源丨中国土地科学</p><p style="white-space: normal;box-sizing: border-box;">作者信息 | 林坚，叶子君，杨红</p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"> 投稿邮箱丨xjxtd@126.com</strong></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">中规建业城市规划设计院   信息中心</strong></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-right: 0%;margin-left: 0%;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 2.5em;height: 2.5em;margin-bottom: -2.5em;border-left: 2px solid rgb(193, 193, 193);border-top: 2px solid rgb(193, 193, 193);box-sizing: border-box;"></section><section style="padding: 8px;display: inline-block;vertical-align: top;transform: rotate(0deg);-webkit-transform: 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