从管理土地建设到管理土地利用改变——探讨深圳土地管理制度改革中的规划概念  

From Administrating Land Allocation and Construction to The Control of Land Use Change:Diverging Planning Control Concepts in The City of Shenzhen's Recent Land Governance Reform

作　　者：单皓[1] 

机构地区：[1]深圳大学建筑与城市规划学院,广东深圳518060

出　　处：《城市发展研究》2017年第2期104-112,共9页Urban Development Studies

摘　　要：深圳近年在二次开发机制创新中使用了面向土地权益主体的发展控制政策,疏解了土地集中储备环节出现的障碍,但是与既有土地使用权和规划制度产生矛盾,也影响土地利用管理规则的稳定性。如何解决其中的矛盾对于创新成果的制度性转变非常关键。在国有土地使用权制度下,随着土地权益从集中向个体转移,土地利用管理将面临新的要求。以此为背景,探讨了规划对土地利用改变全过程进行规划控制的意义和理论上的可能性,以及相应规划权力与机制的调整。Redevelopment involves changes of land use, which under current system requires separate procedures of land resumption and disposition. The role of planning control in such arrangement is to administrate the allocation of the re-assembled state land for new developments. With land resumption facing increased social tension for it＇s compulsory nature and heavy reliance on coercive means, the regeneration of buildable land is impeded and supply will diminish, making current planning control mechanism obsolete. New redevelopment rules are being experimented in Shenzhen during the recent Land Governance Reform, that draw features of development control over private properties as ways to avoid forceful land acquisition. These new measures have risen to be the dominant rules governing redevelopments in Shenzhen, yet their insufficient legal status and their conflict with existing system further destabilizes the condition of land governance. With the process of state land disposition continues and the ownership of private land use rights expands, the existing planning control devices developed in early stages of market reform should be re-evaluated. This article draws on examples from public leasehold systems to discuss the possibility of establishing planning control over land use change to improve land governance and to increase certainty of the rules.

关 键 词：土地利用改变 规划权力 规划控制机制 土地使用权 

分 类 号：TU984[建筑科学—城市规划与设计]