??新(xin)(xin)華社北京9月(yue)18日電　《中(zhong)共中(zhong)央(yang)關于進一步全面深化改革(ge)、推進中(zhong)國(guo)式現(xian)代化的(de)決定(ding)》提出：“優化城市工商業(ye)土(tu)地(di)利(li)用(yong)(yong)(yong)(yong)，加快發展建(jian)設用(yong)(yong)(yong)(yong)地(di)二級(ji)市場，推動土(tu)地(di)混(hun)合開發利(li)用(yong)(yong)(yong)(yong)、用(yong)(yong)(yong)(yong)途合理轉換(huan)，盤(pan)活(huo)存(cun)量(liang)(liang)土(tu)地(di)和(he)低效用(yong)(yong)(yong)(yong)地(di)。”存(cun)量(liang)(liang)土(tu)地(di)和(he)低效用(yong)(yong)(yong)(yong)地(di)是指(zhi)已(yi)經批準為(wei)(wei)建(jian)設用(yong)(yong)(yong)(yong)地(di)但尚未使用(yong)(yong)(yong)(yong)的(de)土(tu)地(di)，以及(ji)現(xian)狀建(jian)設用(yong)(yong)(yong)(yong)地(di)中(zhong)布局散(san)亂、利(li)用(yong)(yong)(yong)(yong)粗放、用(yong)(yong)(yong)(yong)途不合理的(de)土(tu)地(di)等(deng)。推進以人(ren)為(wei)(wei)本的(de)新(xin)(xin)型城鎮化，必須落實最嚴格的(de)節約(yue)用(yong)(yong)(yong)(yong)地(di)制(zhi)度，促進城市發展用(yong)(yong)(yong)(yong)地(di)從增(zeng)量(liang)(liang)依賴向存(cun)量(liang)(liang)挖潛轉變。

??改革(ge)開(kai)(kai)放(fang)以來，我(wo)國經(jing)(jing)歷(li)了世界歷(li)史上規模最(zui)大、速度最(zui)快的(de)(de)(de)(de)城(cheng)(cheng)鎮(zhen)化(hua)(hua)進(jin)程，2023年末城(cheng)(cheng)鎮(zhen)常住人口達(da)到近9.33億(yi)人，形成全球最(zui)大的(de)(de)(de)(de)城(cheng)(cheng)市(shi)(shi)體系(xi)，城(cheng)(cheng)市(shi)(shi)現代化(hua)(hua)水平(ping)不(bu)斷提(ti)高(gao)。與此同時，城(cheng)(cheng)市(shi)(shi)土地(di)(di)(di)(di)(di)(di)利(li)(li)(li)用(yong)(yong)(yong)(yong)也積累了一(yi)些(xie)突出問題(ti)。比(bi)如，一(yi)些(xie)城(cheng)(cheng)市(shi)(shi)“攤大餅”式發展(zhan)，存(cun)(cun)(cun)量土地(di)(di)(di)(di)(di)(di)規模大，園(yuan)區(qu)土地(di)(di)(di)(di)(di)(di)利(li)(li)(li)用(yong)(yong)(yong)(yong)粗放(fang)；一(yi)些(xie)城(cheng)(cheng)市(shi)(shi)空(kong)間(jian)結(jie)構不(bu)合理，有(you)(you)的(de)(de)(de)(de)工商業(ye)用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)占比(bi)大，生態用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)、公(gong)共服(fu)務設(she)施用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)等不(bu)足(zu)，有(you)(you)的(de)(de)(de)(de)城(cheng)(cheng)中村夾(jia)雜其(qi)中，空(kong)間(jian)布局散(san)亂、功(gong)能不(bu)完善。近年來，國家大力推動存(cun)(cun)(cun)量土地(di)(di)(di)(di)(di)(di)盤(pan)活利(li)(li)(li)用(yong)(yong)(yong)(yong)，鼓勵(li)(li)各地(di)(di)(di)(di)(di)(di)尤其(qi)是東部地(di)(di)(di)(di)(di)(di)區(qu)城(cheng)(cheng)市(shi)(shi)開(kai)(kai)展(zhan)低(di)(di)(di)效(xiao)(xiao)用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)再開(kai)(kai)發，促進(jin)挖(wa)潛改造、高(gao)效(xiao)(xiao)利(li)(li)(li)用(yong)(yong)(yong)(yong)。比(bi)如，有(you)(you)的(de)(de)(de)(de)城(cheng)(cheng)市(shi)(shi)實(shi)施低(di)(di)(di)效(xiao)(xiao)建設(she)用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)減(jian)量化(hua)(hua)，有(you)(you)效(xiao)(xiao)緩解(jie)了耕地(di)(di)(di)(di)(di)(di)保護壓力，改善了郊野地(di)(di)(di)(di)(di)(di)區(qu)生態環(huan)境；有(you)(you)的(de)(de)(de)(de)地(di)(di)(di)(di)(di)(di)區(qu)持續實(shi)施舊(jiu)城(cheng)(cheng)鎮(zhen)、舊(jiu)廠房、舊(jiu)村莊(zhuang)改造，推動低(di)(di)(di)效(xiao)(xiao)用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)轉型利(li)(li)(li)用(yong)(yong)(yong)(yong)，為新產業(ye)新業(ye)態發展(zhan)騰出了空(kong)間(jian)。實(shi)踐證明，盤(pan)活存(cun)(cun)(cun)量土地(di)(di)(di)(di)(di)(di)和低(di)(di)(di)效(xiao)(xiao)用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)，有(you)(you)利(li)(li)(li)于提(ti)高(gao)城(cheng)(cheng)市(shi)(shi)土地(di)(di)(di)(di)(di)(di)利(li)(li)(li)用(yong)(yong)(yong)(yong)結(jie)構的(de)(de)(de)(de)協調性，促進(jin)城(cheng)(cheng)市(shi)(shi)內涵式、集約型、綠色化(hua)(hua)發展(zhan)。但盤(pan)活存(cun)(cun)(cun)量土地(di)(di)(di)(di)(di)(di)和低(di)(di)(di)效(xiao)(xiao)用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)涉及(ji)土地(di)(di)(di)(di)(di)(di)權利(li)(li)(li)人多、利(li)(li)(li)益(yi)關系(xi)復(fu)雜，資金(jin)投入量大、盤(pan)活周(zhou)期長(chang)，經(jing)(jing)營主(zhu)體積極性有(you)(you)待提(ti)高(gao)，需(xu)要(yao)進(jin)一(yi)步(bu)強化(hua)(hua)政策激(ji)勵(li)(li)。推進(jin)盤(pan)活存(cun)(cun)(cun)量土地(di)(di)(di)(di)(di)(di)和低(di)(di)(di)效(xiao)(xiao)用(yong)(yong)(yong)(yong)地(di)(di)(di)(di)(di)(di)需(xu)要(yao)著力抓好以下(xia)4個方面(mian)工作。

??第一，堅持城市(shi)(shi)(shi)國(guo)(guo)(guo)土(tu)(tu)空(kong)間規(gui)劃(hua)(hua)統籌(chou)(chou)和(he)引(yin)(yin)領(ling)。城市(shi)(shi)(shi)規(gui)劃(hua)(hua)在城市(shi)(shi)(shi)發(fa)展中起著重(zhong)要(yao)引(yin)(yin)領(ling)作用(yong)(yong)(yong)，規(gui)劃(hua)(hua)科學(xue)是最(zui)大的(de)效益，規(gui)劃(hua)(hua)失誤是最(zui)大的(de)浪費(fei)，規(gui)劃(hua)(hua)折騰是最(zui)大的(de)忌(ji)諱。城市(shi)(shi)(shi)國(guo)(guo)(guo)土(tu)(tu)空(kong)間總體(ti)規(gui)劃(hua)(hua)應(ying)當根據城市(shi)(shi)(shi)空(kong)間功能分區，統籌(chou)(chou)新增用(yong)(yong)(yong)地(di)、存量土(tu)(tu)地(di)和(he)低效用(yong)(yong)(yong)地(di)等各類土(tu)(tu)地(di)利(li)用(yong)(yong)(yong)，提出規(gui)劃(hua)(hua)目標、實(shi)施策略、階段(duan)工(gong)作重(zhong)點和(he)管(guan)控引(yin)(yin)導要(yao)求。城市(shi)(shi)(shi)國(guo)(guo)(guo)土(tu)(tu)空(kong)間詳細規(gui)劃(hua)(hua)應(ying)當合(he)理(li)劃(hua)(hua)分規(gui)劃(hua)(hua)單元(yuan)，明確土(tu)(tu)地(di)利(li)用(yong)(yong)(yong)、建筑布局、交通系統、公共(gong)設施、綠地(di)系統等具體(ti)規(gui)劃(hua)(hua)內(nei)容，為核(he)發(fa)規(gui)劃(hua)(hua)許可、實(shi)施開發(fa)保護建設提供法定依據。

??第二，加快(kuai)發展建(jian)設(she)(she)用(yong)(yong)(yong)地(di)二級(ji)市(shi)(shi)場(chang)。建(jian)設(she)(she)用(yong)(yong)(yong)地(di)二級(ji)市(shi)(shi)場(chang)是建(jian)設(she)(she)用(yong)(yong)(yong)地(di)使用(yong)(yong)(yong)權(quan)人之(zhi)間交(jiao)(jiao)(jiao)易的市(shi)(shi)場(chang)，包括建(jian)設(she)(she)用(yong)(yong)(yong)地(di)使用(yong)(yong)(yong)權(quan)的轉讓、出租、抵押等。在二級(ji)市(shi)(shi)場(chang)中，交(jiao)(jiao)(jiao)易價格反映供求關(guan)(guan)系靈敏，有利于提高土地(di)要素的配置效率。盤活存(cun)量土地(di)和低效用(yong)(yong)(yong)地(di)涉及建(jian)設(she)(she)用(yong)(yong)(yong)地(di)使用(yong)(yong)(yong)權(quan)的流轉，必須(xu)高度重視二級(ji)市(shi)(shi)場(chang)建(jian)設(she)(she)，著(zhu)力完善二級(ji)市(shi)(shi)場(chang)規(gui)則(ze)，規(gui)范交(jiao)(jiao)(jiao)易流程，推進交(jiao)(jiao)(jiao)易信息公開，健全市(shi)(shi)場(chang)監(jian)管機制(zhi)，完善相關(guan)(guan)稅費政策。

??第三，推動土地(di)(di)(di)混合(he)(he)開(kai)發利用(yong)(yong)(yong)(yong)、用(yong)(yong)(yong)(yong)途(tu)合(he)(he)理轉換。隨(sui)著產業轉型和市民生活需(xu)求(qiu)的(de)(de)(de)變(bian)化(hua)，傳統單一功能和用(yong)(yong)(yong)(yong)途(tu)的(de)(de)(de)用(yong)(yong)(yong)(yong)地(di)(di)(di)方(fang)(fang)式(shi)難以(yi)很好適應城(cheng)市發展，這就需(xu)要(yao)增(zeng)強(qiang)土地(di)(di)(di)用(yong)(yong)(yong)(yong)途(tu)管(guan)理的(de)(de)(de)適應性和靈活性。一方(fang)(fang)面，需(xu)要(yao)健全(quan)土地(di)(di)(di)混合(he)(he)開(kai)發利用(yong)(yong)(yong)(yong)相關(guan)制度(du)，在國(guo)土空(kong)間(jian)(jian)規(gui)(gui)劃中合(he)(he)理確定土地(di)(di)(di)用(yong)(yong)(yong)(yong)途(tu)兼容性正負面清單和比例控制要(yao)求(qiu)，支持空(kong)間(jian)(jian)復(fu)合(he)(he)利用(yong)(yong)(yong)(yong)，促(cu)(cu)進產城(cheng)融合(he)(he)、職住平衡，營(ying)造高品質社區。另(ling)一方(fang)(fang)面，需(xu)要(yao)健全(quan)土地(di)(di)(di)用(yong)(yong)(yong)(yong)途(tu)轉換規(gui)(gui)則，在符合(he)(he)國(guo)土空(kong)間(jian)(jian)規(gui)(gui)劃、保(bao)障(zhang)安全(quan)的(de)(de)(de)前提下，允許存(cun)量土地(di)(di)(di)、存(cun)量建筑依(yi)法調(diao)整土地(di)(di)(di)用(yong)(yong)(yong)(yong)途(tu)，完善土地(di)(di)(di)收益(yi)管(guan)理政策，促(cu)(cu)進提升土地(di)(di)(di)要(yao)素(su)利用(yong)(yong)(yong)(yong)效益(yi)。

??第四(si)，健(jian)全(quan)促進土(tu)地(di)(di)(di)節(jie)約集(ji)約利用的政策。提高(gao)城市建設用地(di)(di)(di)集(ji)約化程度(du)，需(xu)要綜合(he)運用經濟、法(fa)律和(he)行(xing)政多(duo)種(zhong)措施。要嚴格城鎮開發(fa)邊界(jie)管理，強化規劃(hua)期內新(xin)增建設用地(di)(di)(di)總量剛性約束。大力推動批而未供土(tu)地(di)(di)(di)利用，采取依法(fa)收(shou)回、協議收(shou)回、調整用途和(he)規劃(hua)條件后使用等(deng)方式分類(lei)處置(zhi)閑置(zhi)土(tu)地(di)(di)(di)。根據低(di)效用地(di)(di)(di)再開發(fa)的特點，完(wan)善土(tu)地(di)(di)(di)收(shou)儲機制，優化土(tu)地(di)(di)(di)收(shou)益分享政策；完(wan)善土(tu)地(di)(di)(di)供應方式，鼓勵土(tu)地(di)(di)(di)使用權人自行(xing)改(gai)造開發(fa)。