49.如何理解盤活存量土地和低效用地這一要求？
《中共中央關于進一步全面深化改革、推進中國式現代化的(de)決(jue)定》提出(chu)：“優化城市工商業土地(di)(di)(di)(di)(di)利(li)用(yong)，加快發(fa)(fa)展(zhan)建設用(yong)地(di)(di)(di)(di)(di)二級(ji)市場(chang)，推動土地(di)(di)(di)(di)(di)混合開發(fa)(fa)利(li)用(yong)、用(yong)途合理轉(zhuan)換，盤活存(cun)量(liang)(liang)土地(di)(di)(di)(di)(di)和(he)低效用(yong)地(di)(di)(di)(di)(di)。”存(cun)量(liang)(liang)土地(di)(di)(di)(di)(di)和(he)低效用(yong)地(di)(di)(di)(di)(di)是指已經(jing)批準為(wei)建設用(yong)地(di)(di)(di)(di)(di)但尚未使(shi)用(yong)的(de)土地(di)(di)(di)(di)(di)，以及現狀建設用(yong)地(di)(di)(di)(di)(di)中布局散亂、利(li)用(yong)粗放、用(yong)途不合理的(de)土地(di)(di)(di)(di)(di)等。推進以人為(wei)本的(de)新型城鎮化，必須落實最嚴格(ge)的(de)節約用(yong)地(di)(di)(di)(di)(di)制度，促(cu)進城市發(fa)(fa)展(zhan)用(yong)地(di)(di)(di)(di)(di)從增量(liang)(liang)依賴向存(cun)量(liang)(liang)挖(wa)潛轉(zhuan)變(bian)。
改革開(kai)放(fang)以來，我國經(jing)歷了世(shi)界歷史上規模最(zui)(zui)大、速度最(zui)(zui)快的城(cheng)(cheng)(cheng)(cheng)鎮化(hua)進(jin)程(cheng)，2023年末(mo)城(cheng)(cheng)(cheng)(cheng)鎮常住人口達到近9.33億人，形成全球最(zui)(zui)大的城(cheng)(cheng)(cheng)(cheng)市(shi)體系(xi)，城(cheng)(cheng)(cheng)(cheng)市(shi)現代(dai)化(hua)水平不斷(duan)提(ti)(ti)高。與此同(tong)時，城(cheng)(cheng)(cheng)(cheng)市(shi)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)利用(yong)(yong)也積(ji)累了一(yi)些突(tu)出問題。比(bi)如(ru)，一(yi)些城(cheng)(cheng)(cheng)(cheng)市(shi)“攤大餅”式發(fa)展(zhan)，存(cun)量(liang)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)規模大，園區(qu)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)利用(yong)(yong)粗放(fang)；一(yi)些城(cheng)(cheng)(cheng)(cheng)市(shi)空(kong)間(jian)結(jie)構不合理，有(you)的工(gong)商業(ye)用(yong)(yong)地(di)(di)(di)(di)(di)(di)占(zhan)比(bi)大，生(sheng)態(tai)用(yong)(yong)地(di)(di)(di)(di)(di)(di)、公共(gong)服務(wu)設施(shi)用(yong)(yong)地(di)(di)(di)(di)(di)(di)等不足(zu)，有(you)的城(cheng)(cheng)(cheng)(cheng)中(zhong)村(cun)(cun)夾雜(za)其(qi)中(zhong)，空(kong)間(jian)布局散亂(luan)、功能不完(wan)善。近年來，國家大力(li)推動存(cun)量(liang)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)盤(pan)活(huo)(huo)(huo)利用(yong)(yong)，鼓勵(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)(cheng)(cheng)市(shi)開(kai)展(zhan)低效(xiao)(xiao)(xiao)用(yong)(yong)地(di)(di)(di)(di)(di)(di)再開(kai)發(fa)，促進(jin)挖(wa)潛(qian)改造、高效(xiao)(xiao)(xiao)利用(yong)(yong)。比(bi)如(ru)，有(you)的城(cheng)(cheng)(cheng)(cheng)市(shi)實施(shi)低效(xiao)(xiao)(xiao)建設用(yong)(yong)地(di)(di)(di)(di)(di)(di)減量(liang)化(hua)，有(you)效(xiao)(xiao)(xiao)緩解了耕地(di)(di)(di)(di)(di)(di)保(bao)護(hu)壓力(li)，改善了郊野地(di)(di)(di)(di)(di)(di)區(qu)生(sheng)態(tai)環境；有(you)的地(di)(di)(di)(di)(di)(di)區(qu)持續實施(shi)舊城(cheng)(cheng)(cheng)(cheng)鎮、舊廠房、舊村(cun)(cun)莊改造，推動低效(xiao)(xiao)(xiao)用(yong)(yong)地(di)(di)(di)(di)(di)(di)轉型(xing)利用(yong)(yong)，為(wei)新產業(ye)新業(ye)態(tai)發(fa)展(zhan)騰(teng)出了空(kong)間(jian)。實踐證明(ming)，盤(pan)活(huo)(huo)(huo)存(cun)量(liang)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)和低效(xiao)(xiao)(xiao)用(yong)(yong)地(di)(di)(di)(di)(di)(di)，有(you)利于提(ti)(ti)高城(cheng)(cheng)(cheng)(cheng)市(shi)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)利用(yong)(yong)結(jie)構的協調性，促進(jin)城(cheng)(cheng)(cheng)(cheng)市(shi)內(nei)涵式、集約型(xing)、綠色化(hua)發(fa)展(zhan)。但盤(pan)活(huo)(huo)(huo)存(cun)量(liang)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)和低效(xiao)(xiao)(xiao)用(yong)(yong)地(di)(di)(di)(di)(di)(di)涉及土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)權利人多(duo)、利益關(guan)系(xi)復(fu)雜(za)，資金投入量(liang)大、盤(pan)活(huo)(huo)(huo)周(zhou)期長(chang)，經(jing)營主(zhu)體積(ji)極性有(you)待提(ti)(ti)高，需(xu)要進(jin)一(yi)步(bu)強(qiang)化(hua)政策激勵(li)。推進(jin)盤(pan)活(huo)(huo)(huo)存(cun)量(liang)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)和低效(xiao)(xiao)(xiao)用(yong)(yong)地(di)(di)(di)(di)(di)(di)需(xu)要著力(li)抓好以下4個方面工(gong)作。
第一，堅持城市國土空間規劃統籌和引領。城(cheng)市(shi)(shi)規(gui)(gui)(gui)劃(hua)(hua)在城(cheng)市(shi)(shi)發(fa)展中(zhong)起著重要引領(ling)作用(yong)(yong)，規(gui)(gui)(gui)劃(hua)(hua)科學(xue)是(shi)最大的效(xiao)益，規(gui)(gui)(gui)劃(hua)(hua)失誤是(shi)最大的浪(lang)費，規(gui)(gui)(gui)劃(hua)(hua)折騰是(shi)最大的忌諱。城(cheng)市(shi)(shi)國(guo)土(tu)空(kong)間總體規(gui)(gui)(gui)劃(hua)(hua)應當(dang)根據城(cheng)市(shi)(shi)空(kong)間功能(neng)分區，統(tong)籌新增用(yong)(yong)地(di)(di)(di)、存(cun)量土(tu)地(di)(di)(di)和(he)低效(xiao)用(yong)(yong)地(di)(di)(di)等各類土(tu)地(di)(di)(di)利(li)用(yong)(yong)，提(ti)出規(gui)(gui)(gui)劃(hua)(hua)目(mu)標、實施策略(lve)、階(jie)段工作重點(dian)和(he)管控引導要求。城(cheng)市(shi)(shi)國(guo)土(tu)空(kong)間詳細規(gui)(gui)(gui)劃(hua)(hua)應當(dang)合(he)理劃(hua)(hua)分規(gui)(gui)(gui)劃(hua)(hua)單元(yuan)，明確土(tu)地(di)(di)(di)利(li)用(yong)(yong)、建筑布局、交通(tong)系(xi)統(tong)、公共設施、綠地(di)(di)(di)系(xi)統(tong)等具體規(gui)(gui)(gui)劃(hua)(hua)內容，為(wei)核(he)發(fa)規(gui)(gui)(gui)劃(hua)(hua)許可、實施開發(fa)保護(hu)建設提(ti)供法定依據。
第二，加快發展建設用地二級市場。建設用(yong)地(di)(di)(di)二級(ji)(ji)市(shi)(shi)場(chang)(chang)(chang)是建設用(yong)地(di)(di)(di)使(shi)用(yong)權人之(zhi)間交易(yi)(yi)的(de)(de)市(shi)(shi)場(chang)(chang)(chang)，包(bao)括建設用(yong)地(di)(di)(di)使(shi)用(yong)權的(de)(de)轉(zhuan)讓、出租(zu)、抵押等。在二級(ji)(ji)市(shi)(shi)場(chang)(chang)(chang)中，交易(yi)(yi)價(jia)格反映供(gong)求關(guan)系靈(ling)敏，有利于提高(gao)土地(di)(di)(di)要素的(de)(de)配置效(xiao)率。盤活存量(liang)土地(di)(di)(di)和(he)低效(xiao)用(yong)地(di)(di)(di)涉及建設用(yong)地(di)(di)(di)使(shi)用(yong)權的(de)(de)流轉(zhuan)，必須高(gao)度重(zhong)視(shi)二級(ji)(ji)市(shi)(shi)場(chang)(chang)(chang)建設，著(zhu)力(li)完善二級(ji)(ji)市(shi)(shi)場(chang)(chang)(chang)規(gui)則，規(gui)范交易(yi)(yi)流程，推(tui)進交易(yi)(yi)信息公開，健全(quan)市(shi)(shi)場(chang)(chang)(chang)監管機(ji)制，完善相(xiang)關(guan)稅費政策。
第三，推動土地混合開發利用、用途合理轉換。隨著產業(ye)轉型和市(shi)民生(sheng)活需求(qiu)的(de)(de)變(bian)化，傳統單一(yi)功能和用(yong)(yong)(yong)(yong)途的(de)(de)用(yong)(yong)(yong)(yong)地(di)方式難以很好(hao)適應城市(shi)發展，這就(jiu)需要增強(qiang)土(tu)(tu)(tu)(tu)地(di)用(yong)(yong)(yong)(yong)途管理的(de)(de)適應性(xing)(xing)和靈活性(xing)(xing)。一(yi)方面，需要健(jian)全(quan)土(tu)(tu)(tu)(tu)地(di)混合(he)(he)開發利(li)用(yong)(yong)(yong)(yong)相關制度，在國土(tu)(tu)(tu)(tu)空(kong)間規(gui)劃中合(he)(he)理確(que)定(ding)土(tu)(tu)(tu)(tu)地(di)用(yong)(yong)(yong)(yong)途兼容性(xing)(xing)正負面清單和比(bi)例控制要求(qiu)，支持空(kong)間復合(he)(he)利(li)用(yong)(yong)(yong)(yong)，促進產城融(rong)合(he)(he)、職住平衡，營造高品質社區(qu)。另一(yi)方面，需要健(jian)全(quan)土(tu)(tu)(tu)(tu)地(di)用(yong)(yong)(yong)(yong)途轉換規(gui)則，在符合(he)(he)國土(tu)(tu)(tu)(tu)空(kong)間規(gui)劃、保障安全(quan)的(de)(de)前提(ti)下，允許存量土(tu)(tu)(tu)(tu)地(di)、存量建筑依法調(diao)整土(tu)(tu)(tu)(tu)地(di)用(yong)(yong)(yong)(yong)途，完善土(tu)(tu)(tu)(tu)地(di)收(shou)益管理政策，促進提(ti)升(sheng)土(tu)(tu)(tu)(tu)地(di)要素利(li)用(yong)(yong)(yong)(yong)效(xiao)益。
第四，健全促進土地節約集約利用的政策。提高城市建(jian)設(she)用(yong)(yong)地(di)(di)集約(yue)化程度(du)，需要綜合運用(yong)(yong)經濟(ji)、法(fa)律和(he)行政多(duo)種措施。要嚴格城鎮開(kai)發(fa)(fa)邊界管理，強化規劃(hua)期內新增建(jian)設(she)用(yong)(yong)地(di)(di)總量剛性約(yue)束(shu)。大力(li)推(tui)動批而未供土(tu)(tu)地(di)(di)利用(yong)(yong)，采(cai)取依(yi)法(fa)收(shou)回(hui)、協議收(shou)回(hui)、調(diao)整用(yong)(yong)途和(he)規劃(hua)條件后使用(yong)(yong)等方(fang)式(shi)分類處置閑置土(tu)(tu)地(di)(di)。根據低效用(yong)(yong)地(di)(di)再開(kai)發(fa)(fa)的(de)特點(dian)，完(wan)善土(tu)(tu)地(di)(di)收(shou)儲機制，優化土(tu)(tu)地(di)(di)收(shou)益分享(xiang)政策；完(wan)善土(tu)(tu)地(di)(di)供應方(fang)式(shi)，鼓勵土(tu)(tu)地(di)(di)使用(yong)(yong)權人自行改造開(kai)發(fa)(fa)。
來源：共產黨員網