- 规划引领全域土地综合整治赋能区域高质量发展
- 文章编号：1009-6000(2025)09-0009-08
- 中图分类号：F291 文献标识码：A
- Doi：10.3969/j.issn.1009-6000.2025.09.002
- 项目基金：教育部哲学社会科学重大课题攻关项目（23JZD008）；国家自然科学基金面上项目（42171193）；广东省社科规划“落实党的二十届三中全会精神”专项研究重点项目（GD24ES013）；中山大学高校基本科研业务费交叉学科培育项目（24wkjc11）；广州市基础与应用基础研究专项[（科技菁英“领航”方向）2025A04J7127]。
- 作者简介：杨忍，通信作者，教授，博士生导师，广东省习近平新时代中国特色社会主义思想研究中心特约研究员，中山大学地理科学与规划学院，中山大学乡村振兴联合研究院，中山大学中国式现代化广东实践研究院，中山大学土地研究中心，主要研究方向：乡村地理、城乡发展与土地利用；
葛语思，博士研究生，中山大学地理科学与规划学院，中山大学乡村振兴联合研究院，研究方向：乡村地理与城乡发展；
安悦，博士后，中山大学地理科学与规划学院，中山大学乡村振兴联合研究院，主要研究方向：城乡土地利用与乡村发展。
- 全域土地综合整治支撑城乡融合发展的理论认知与实践路径
- Theoretical Cognition and Practical Pathways of
Comprehensive Land Consolidation in Supporting Urban-
Rural Integration
- 杨忍 葛语思 安悦
- YANG Ren GE Yusi AN Yue
- 摘要：
城乡融合发展作为国家重大战略，其本质在于通过人地关系重构实现城乡要素双向流动与效益共享。文章基于对城乡融合与全域土地综合整治“区域战略—系统工程”支撑关系演进逻辑的深度剖析，从理论认知层面提出“组织优化—要素整合—功能重组—空间融合”协同框架：（1）以科层调控与市场调节互补机制优化城乡资源配置，通过五级传导体系强化战略约束，并强调以弹性市场工具提升执行效能；（2）以四权分置（所有权、资格权、使用权、发展权）产权改革破解要素流动壁垒，通过发展权交易、增值收益多元分配及基础设施共建共享，实现城乡要素市场化配置与权益平衡；（3）构建“乡镇—县域—区域”产业链协同系统，以生态文化价值转化、房地联配机制与复合用地政策推动城乡功能有序升级；（4）通过土地分类整治、城乡异质响应、分区域布局优化的全域统筹策略，实现资源配置深层转型。以佛山市南海区为例，其“三券”制度（地券、绿券、房券）通过要素商品化破解土地资源错配，促进产业集聚、生态资本增值与民生保障长效化。一方面，构建差异化治理与片区协同机制，在县镇村联动区强化政府统筹的用地指标跨域调配，在都市圈协同发展区激活市场主导的多主体整治效能。另一方面，创新分阶段生态价值转化机制，推动生态修复成果向可持续资本转型。总体而言，全域土地综合整治通过系统性空间治理推动城乡要素重组与空间价值再造，逐渐由单一土地整理工具升级为实现城乡融合区域性战略的关键路径。 - 关键词：
全域土地综合整治；城乡融合；土地发展权；空间价值 - Abstract: As a major national strategy, urban–rural integrated development essentially lies in realizing the two-way fl ow and benefi t sharing of urban and rural factors through the reconstruction of human–land relations. Based on an in-depth analysis of the evolutionary logic of the supporting relationship between urban–rural integration and territorial comprehensive land consolidation as a “regional strategy–system project”, this article proposes, at the level of theoretical cognition, a collaborative framework of “organizational optimization–factor integration–functional reorganization–spatial integration”: (1) Optimizing the allocation of urban and rural resources through the complementary mechanism of hierarchical regulation and market adjustment, strengthening strategic constraints through a fi ve-level transmission system, and emphasizing the enhancement of implementation effi ciency by means of fl exible market tools; (2) Breaking the barriers to factor fl ow through property rights reform of “separation of four rights” (ownership, qualifi cation, use, and development rights), and realizing the market-oriented allocation and balance of interests of urban and rural factors through development rights trading, diversifi ed distribution of value-added benefits, and joint construction and sharing of infrastructure; (3) Building an industrial chain collaborative system of “township–county–region”, and promoting the orderly upgrading of urban and rural functions through the transformation of ecological and cultural values, the housing–land matching mechanism, and composite land-use policies; (4) Realizing deep transformation of resource allocation through an overall territorial strategy of land classifi cation consolidation, heterogeneous urban–rural response, and subregional layout optimization. Taking Nanhai district of Foshan city as an example, its “three-voucher” system (land voucher, green voucher, and housing voucher) addresses land resource mismatches through factor commodifi cation, promoting industrial agglomeration, ecological capital appreciation, and long-term livelihood security. On the one hand, it builds differentiated governance and regional collaborative mechanisms: in the county–town–village linkage zone, strengthening government-led cross-regional allocation of land-use quotas; and in the metropolitan area collaborative development zone, activating multi-subject consolidation efficiency under market leadership. On the other hand, it innovates phased mechanisms for ecological value transformation, promoting the conversion of ecological restoration achievements into sustainable capital. Overall, territorial comprehensive land consolidation promotes the reorganization of urban and rural factors and the reconstruction of spatial value through systematic spatial governance, and has gradually evolved from a single land consolidation tool into a key path for achieving the regional strategy of urban–rural integration.
- Key words: comprehensive land consolidation; urban-rural integration; land development rights; spatial value regeneration