城镇存量用地再开发政策演变量化研究——基于“政策结构—政策工具—政策效力”分析框架  

Quantitative Research on the Evolution of Extant Urban Land Redevelopment Policy:Based on the Analytical Framework of“Policy Structure-Policy Tools-Policy Effectiveness”

作　　者：张佩 尚怡君 马贤磊[1,2] 陈扬 于潇 ZHANG Pei;SHANG Yijun;MA Xianlei;CHEN Yang;YU Xiao(College of Public Administration,Nanjing Agricultural University,Nanjing 210095,China;China Resources Environment and Development Academy,Nanjing Agricultural University,Nanjing 210095,China;Jiangsu Natural Resources Think Tank,Nanjing 210017,China;China Land Surveying and Planning Institute,Beijing 100035,China)

机构地区：[1]南京农业大学公共管理学院,江苏南京210095 [2]南京农业大学中国资源环境与发展研究院,江苏南京210095 [3]江苏自然资源智库,江苏南京210017 [4]中国国土勘测规划院,北京100035

出　　处：《中国土地科学》2025年第2期12-22,共11页China Land Science

基　　金：国家社会科学基金哲学社会科学领军人才项目(22VRC163);自然资源重大战略问题研究与智库建设项目(ZHGL242026-01);江苏自然资源智库2024年度开放合作项目(ZK24001)。

摘　　要：研究目的:开展不同阶段城镇存量用地再开发政策量化评价研究,为优化高质量发展目标下存量用地再开发政策体系提供科学借鉴。研究方法:政策文献计量法、PMC指数评价法。研究结果:(1)政策结构上,我国城镇存量用地再开发政策演进历经了“萌芽发展—试点探索—稳中提升”三个时期。(2)政策类别上,虽仍以意见、通知、方案为主,但法律类政策文本比重不断上升。(3)政策主体上,呈现以各级政府为统领,自然资源部门为核心,住建、发改、财政等多部门协同参与的特征。(4)政策工具上,呈现财税支持和协同治理类政策工具不断上升,而规划管制和市场管理类工具持续下降的态势。(5)政策效力上,选取的15份专项政策样本整体设计较为合理,中央和典型地区(广东、上海、浙江、江苏)政策样本PMC指数均呈持续上升态势,但各地间政策效力评价结果差异较大。研究结论:健全城镇存量用地再开发政策,要注重长期综合收益,推动政策文本法律化,完善以各级政府为统领、自然资源部门为核心、多部门参与的协同治理体制,综合运用各类政策工具,多措并举构建政策效力全面评估机制。The purpose of this paper is to conduct quantitative evaluation research on the redevelopment policies of extant urban land at different stages,to provide scientific reference for optimizing the policy system of extant land redevelopment under the goal of high-quality development.The research methods include policy bibliometric approach and PMC index evaluation.The research results show that in terms of policy structure,the evolution of extant urban land redevelopment policy in China has gone through three periods,i.e.,budding development,pilot exploration and stable improvement.Although opinions,notices and plans are still the main categories of policies,the proportion of legal policy texts continue to rise.The characteristics of policy entities are led by governments at all levels,with natural resources departments as the core,and multiple departments such as housing and construction,development and reform,and finance participating in coordination.In terms of policy tools,there is an overall trend of increasing financial and tax support and collaborative governance policy tools,while planning and market management tools continue to decline.In terms of policy effectiveness,the overall design of the 15 selected special policy samples is relatively reasonable.The PMC index of policy samples from the central and typical regions(Guangdong,Shanghai,Zhejiang,Jiangsu)have shown a continuous upward trend,but there are significant differences in policy effectiveness evaluation results among different regions.In conclusion,to improve the policy of extant urban land redevelopment,long-term comprehensive benefits deserve more attentions;the legalization of policy texts should be promoted;the collaborative governance system led by governments at all levels should be improved,with natural resources departments as the core and multiple departments participating in coordination.Moreover,various policy tools should be comprehensively used,and multiple measures should be taken to construct a comprehensive evaluation mechanism for

关 键 词：城镇存量用地 存量用地再开发 政策文本 政策量化评估 

分 类 号：F301.2[经济管理—产业经济]