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乡村产业用地保障的逻辑、模式与路径

Logic, models and paths of land security for rural industries

  • 摘要: 用地保障是乡村产业振兴的关键部分和重要基础,促进产业用地的精准保障和科学供给,对于推动乡村全面振兴和新时期国土空间治理具有重要意义。该研究在系统梳理乡村产业用地的概念特征及政策演进脉络基础上,通过归纳“区域管控-资源配置-产业重构-约束治理”的四维逻辑,提炼乡村产业用地保障的四大典型模式,进而探索从用地规划、保障、监管及制度创新等方面的路径对策。结果表明:1)乡村产业用地保障政策可划分为用地需求起步、用地快速扩张、用地动态调整、规划管控强化和持续纵深推进5个阶段,地方政策则集中于点状供地、产业融合、统筹利用等方面,存在区域管控、资源配置、产业重构及约束治理四大逻辑。2)乡村产业用地保障可归结为整治盘活的资源重组、空间规划的优化重构、文旅驱动的功能拓展以及三产融合的复合利用四种模式,对应乡村产业用地整治系统化、用地治理精细化、用地支撑全面化及用地综合化。3)乡村产业用地保障须坚持底线管控与弹性适配的用地规划统筹,强化精准施策与多元盘活的用地供给保障,促进分类调控与动态优化的用地使用监督以及推进协同治理与数字赋能的用地制度创新,形成乡村产业用地多元化保障格局。未来,应充分回应乡村三产融合更加复杂、多元的用地诉求,增强产业用地保障的有效性、衔接性,促进乡村三产融合高质量发展。

     

    Abstract: Land use guarantee is one of the key components in rural industrial revitalization. Accurate guarantee and scientific supply of rural industrial land use is of great significance to promote the spatial governance of the countryside in recent years. This study aims to systematically sort out the evolution of rural industrial land use. Four major modes were summarized and then refined to protect the rural industrial land use, according to the four-dimensional logic of “regional control-resource allocation-industrial reconstruction-restrictive governance”. A systematic investigation was also made to explore the land use protection from decision-making to reconstruction. The path framework was finally proposed for the rural industrial land security, including land use planning, security, regulation, and institutional innovation. The results show that: (1) The national policy on rural industrial land was roughly divided into five stages: land requirements commencement, rapid expansion of land use, dynamic adjustment of land use, strengthening of planning, as well as the continuous promotion, while regional policies focused mainly on the point land supply, industrial integration, and overall utilization. Four major logics were obtained, including the regional control, resource allocation, industrial restructuring, and constraint governance. (2) Land security of the rural industries was mainly attributed to the resource restructuring after improvement, optimization, and reconstruction under spatial planning, functional expansion driven by culture and tourism, as well as the composite utilization after industry integration. A systematic investigation was performed on land improvement, refinement of land management, support of land, and land utilization for rural industries. (3) In rural industrial land security, it was necessary to integrate the land use planning coordination of bottom-line control and flexible adaptation. Accurate policymaking and diversified revitalization strengthened the land use supply security. The land use supervision was also promoted for the classified control and dynamic optimization. Furthermore, the land use system was also promoted for collaborative governance and digital empowerment. As such, the diversified pattern of the land use security was formed for the countryside industry. In conclusion, the findings can fully meet the more complex and diversified land use requirements of the rural tri-product integration with the three industries in the countryside. The effectiveness of the industrial land use protection also promoted the high-quality development of the rural tri-product integration. National land spatial planning can greatly contribute to the high-quality development of the integration of rural industries.

     

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