- 存量时代的土地利用与治理创新：迈向权能平衡的城乡发展新范式
- 文章编号：1009-6000(2026)04-0048-08
- 中图分类号：TU984；F301 文献标识码：B
- Doi：10.3969/j.issn.1009-6000.2026.04.007
- 项目基金：国家社科基金重大项目“面向乡村产业振兴的土地利用转型研究” （23&Z D114）；广东省哲学社会科学规划项目“珠三角集体产业用地转型机制与对策研究：基于乡村经济治理结构的视角”（GD24YGL24）；深圳大学2035追求卓越研究计划“区域网络协同时代绿色城市规划设计理论研究”（2022B005）；深圳大学新引进高端人才科研启动项目（827-000929）；深圳大学青年教师科研启动经费（868-000001032145）。
- 作者简介：严雅琦，深圳大学建筑与城市规划学院助理教授，硕士生导师；
曾栩语，深圳大学建筑与城市规划学院研究生；
杨瑞，通信作者，深圳市城市规划设计研究院股份有限公司主任规划师，城乡规划高级工程师；
刘怀宽，东莞市规划设计研究院有限公司城乡规划高级工程师；
尉闻，深圳市宝安区城市更新和土地整备局工程师。
- 高质量发展时期存量产业空间更新实施困境与形成机制：以东莞市为例
- The Implementation Dilemma and Formation Mechanism of the Renewal of Existing Industrial Space in the High-Quality Development Period: A Case Study of Dongguan
- 严雅琦 曾栩语 杨瑞 刘怀宽 尉闻
- YAN Yaqi ZENG Xuyu YANG Rui LIU Huaikuan YU Wen
- 摘要：
自进入高质量发展时期，多地积极探索存量产业空间更新政策创新以赋能经济转型升级，但更新政策的实施成效有待检验。文章以东莞市为例，梳理其存量产业空间更新演化历程，重点厘清高质量发展时期的政策特点。通过构建“两场域—两张力”的分析框架，剖析存量产业空间更新实施的影响机制。研究发现：（1）存量产业空间更新政策的实施面临体制场域、社会场域的双重张力制约；（2）社会场域的“国家—社会”张力源于制度供给与市场需求的错配，包括政府连片收储与集体自持意愿、政府净地供应与企业局部改善需求、开发规模底线与市场拿地规模之间的三重矛盾；（3）体制场域的府际张力源于纵向和横向府际关系中的“风险—激励”非对称难题，包括地方政府财政收支、权责关系的不平衡等。最后，展望了缓解张力的配套政策创新。 - 关键词：
存量更新；产业空间；规划实施；高质量发展；东莞 - Abstract: Entering the stage of high-quality development, many regions have been actively exploring policy innovations for the renewal of existing industrial spaces to empower economic transformation and upgrading. However, the implementation effectiveness of these renewal policies remains to be verifi ed. Taking Dongguan as an example, this paper sorts out the evolution process of the renewal of existing industrial spaces and focuses on clarifying the policy characteristics in the period of high-quality development. By constructing an analytical framework of “two fields – two tensions”, this paper analyzes the influencing mechanism of the implementation of the renewal of existing industrial spaces. The findings are as follows: (1) The implementation of the renewal policies for existing industrial spaces is constrained by the dual tensions in the institutional field and the social field; (2) The “state-society” tension in the social field stems from the mismatch between institutional supply and market demand, including the three contradictions between the government’s large-scale land acquisition and the collective’s willingness to hold land, the government’s supply of clean land and the enterprises’ demand for local improvement, and the bottom line of development scale and the market’s demand for land acquisition scale; (3) Intergovernmental tensions in the institutional arena stem from the asymmetry of “risk–incentive” in both vertical and horizontal intergovernmental relations, including imbalances in local government fiscal revenues and expenditures and in the allocation of powers and responsibilities. Finally, the paper proposes policy innovations to alleviate these tensions.
- Key words: urban regeneration; industrial space; planning implementation; high-quality development; Dongguan