从“划地”到“划权”——基于土地发展权的留用地制度改革逻辑与优化路径  

From"Land Allocation"to"Right Allocation":The Logic and Optimization Path of the Reform of Retained Land System based on Land Development Rights

作　　者：潘向向 储君 李翔 仝德 PAN Xiangxiang;CHU Jun;LI Xiang;TONG De

机构地区：[1]北京大学深圳研究生院城市规划与设计学院,广东深圳518055 [2]广东省人文社科重点研究基地超大城市空间治理现代化研究中心,广东深圳518055 [3]厦门大学建筑与土木工程学院,福建厦门361005

出　　处：《城市发展研究》2024年第11期30-38,共9页Urban Development Studies

基　　金：深圳市哲学社会科学规划2024年度课题(SZ2024B014);北京大学未来城市实验室(深圳)铁汉科研开放课题基金项目(202101);深圳市人文社会科学重点研究基地建设基金。

摘　　要：通过研究留用地制度在实施过程中面临的困境,从土地发展权的视角,探讨留用地制度改革的总体逻辑框架和具体优化路径。研究结果:(1)作为一种特殊的征地补偿制度,现行留用地制度普遍采用的“划地”(返还实物留用地)做法面临指标兑现困境、开发建设困境和权益保障困境,不利于高质量发展,亟需开展改革优化;(2)阐明基于土地发展权转移破解我国留用地制度困境的理论逻辑,并从指标设立、合作开发和实施监督三方面提出留用地制度向“划权”(返还土地发展权指标)转变的系统性改革框架;(3)通过精细量化实现权益分离、弹性落实共享增值收益和持续跟踪保障长期权益等具体措施推动留用地制度的“划权”改革,实现与空间优化、产业振兴和社会治理等多维目标的联动。By studying the difficulties faced by the implementation of the retained land system and from the perspective of land development rights,this paper explores the overall logical framework and specific optimization path for the reform of the retained land system.Research findings:(1)As a special land acquisition compensation system,the current retained land system commonly adopts the"land allocation"(returning physical land)approach,which faces difficulties in achieving indicators,development and construction,and rights protection,which is not conducive to high-quality development and urgently needs reform;(2)Clarify the theoretical logic of solving the dilemma of retained land system based on Transfer of Development Rignt,and propose a systematic reform framework for the transformation of the retained land system to"right allocation"(returning land development rights indicators)from three aspects:indicator setting,cooperative development,and implementation supervision;(3)By implementing specific measures such as finely quantifying the separation of rights and interests,implementing flexible sharing of value-added benefits,and continuously tracking and safeguarding long-term rights and interests,we will promote the reform of the retained land system and achieve linkage with multidimensional goals such as spatial optimization,industrial revitalization,and social governance.

关 键 词：留用地 土地发展权 权益分离 土地制度改革 

分 类 号：F301.0[经济管理—产业经济]