制造新城:县域城镇化的发生机制及后果--基于土地开发的视角  

Create a New City:The Mechanism and Consequences of County Urbanization——From the Perspective of Land Development

作　　者：郭亮[1] GUO Liang

机构地区：[1]华中科技大学法学院,湖北武汉430074

出　　处：《深圳社会科学》2025年第2期70-78,共9页Social Sciences in Shenzhen

基　　金：2022年度国家人权教育与培训基地重大项目“新时代农民人权保障和基层治理现代化的相互促进机制研究”(22JJ D820044)。

摘　　要：当前我国很多县级政府正在大规模地建设新城区,新城区建设成为县域城镇化的重要内容。从世界主要城市发展的一般规律来看,新城的开发和建设是城市经济和社会发展的必然,也是推动城市经济社会进一步发展的重要措施。然而,深入到我国当前县级政府开发新城区的过程中会发现,新城区的建设和发展受到降低治理成本、获取土地收益和快速做出政绩等多重动机的驱动。这意味着,相比于经济与社会力量的推动,新城区的出现更多地是行政权力直接推动和运作的结果。为了能够快速推动新城区的建设,县级政府围绕着土地的利用和开发开展了一系列策略性行动。在具体机制上,县级政府通常采取用地指标的使用和获取策略、土地供给的协调策略、土地开发权的垄断策略等手段确保新城区的开发成功。尽管土地开发策略的使用快速推动了新城区建设,但这种发展模式却具有高度的不稳定和脆弱性,并给县域城镇化的发展带来了诸多风险。伴随着国家新型城镇化战略的实施,县域土地的开发中需要容纳多元土地利益主体的存在,限制和分散土地的开放权力才可能从根本上改变这种激进的土地城镇化模式。Currently,many county-level governments in China are constructing new urban areas on a large scale,which has become an important part of county-level urbanization.From the general laws of development in major cities around the world,the development and construction of new cities is an inevitable result of urban economic and social development,and also important measures to promote further development of urban economy and society.However,in the process of developing new urban areas by countylevel governments in China.I found that the construction and development of new urban areas are driven by multiple motivations such as reducing governance costs,obtaining land benefits and quickly achieving political achievements.This means the emergence of new urban areas is mainly the result of direct promotion by administrative power,rather than being driven by economic and social forces.In order to quickly promote the construction of new urban areas,the county government has carried out a series of strategic actions around land use and development.In terms of specific measures,county governments generally prefer using and obtaining land indicators,coordinating land supply and monopolizing land development rights.Although this strategy has rapidly achieved urbanization of land,it has the characteristics of instability and fragility.Besides,it has brought many risks.With the implementation of the national new urbanization strategy,it is necessary to accommodate diverse land stakeholders in land development.By restricting and decentralizing the development power of land,the country may change this radical land urbanization model.

关 键 词：县域城镇化 新城 土地控制 土地开发 

分 类 号：D630[政治法律—政治学]