河北省清河县土地规划修编中的城乡建设用地增减挂钩研究
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摘要
目前我国正处于工业化、城镇化的快速发展时期,土地资源的稀缺性和结构布局上的不合理性一直是制约经济社会发展的重要瓶颈。其中,尤以城镇建设用地供需紧张和与农村的粗放浪费为特征,严重制约着城乡土地资源的有效利用和耕地资源保护目标的实现。在土地利用总体规划修编过程中,依法依规合理推进城乡建设用地增减挂钩是实现城乡统筹发展,共同繁荣的关键。鉴于此,本文探讨了土地利用规划修编中城乡建设用地增减挂钩的理论、方法、技术,并结合农用地分等定级成果,采用按等折算的方法实现挂钩前后的占补平衡,以河北省清河县为例进行了实证,为我国土地利用总体规划编制中的挂钩工作提供方法借鉴。本文的研究主要包括以下几个部分:
采用人均定额法、趋势预测法、灰色系统预测法多方法综合预测规划末期清河县城镇建设用地需求规模为3400.57hm~2,根据2009年现状城镇用地规模、规划期间需新增建设用地规模,结合上级规划下达新增指标,得到563.99hm~2的需求空间需要通过挂钩予以解决。
农村建设用地整理复垦潜力按照人均农村居民点用地标准计算,考虑到制约农村居民点整理潜力还有其他很多因素,从经济因素、社会因素和土地资源因素3个方面进行分析,建立农村居民点整理经济、社会、土地资源因素限制下的指标体系,采用层次分析法(AHP)确定各指标权重,通过计算,得到农村建设用地整理复垦的现实潜力为2614.54hm~2。核减掉义务缩减量359.47hm~2、农村安置区规模为1329.74hm~2,即为挂钩潜力规模925.33hm~2,与挂钩需求规模563.99hm~2比较可知,能满足挂钩的需求。
最终需要拆旧的农村居民点规模,农村建设用地整理规模分为两部分,规划必须完成的义务缩减量、安置区和挂钩建新需拆旧规模。挂钩需拆旧规模根据建新占用耕地的等别和规模,按照按等折算的方法,确定为1909.85hm~2,而清河县规划必须完成的义务缩减量为359.47hm~2,从而得到应整理的农村建设用地为2269.32hm~2才能满足城镇用地发展的需求。
At present our country is in the stage of accelerating industrialization and urbanization, land resources scarcity and the unreasonable structure has restricted the development of economy and society. Urban construction land is in a tense contradiction of supply and demand, whereas rural resident land is used in low efficiency, which have seriously affected the effective use of land resources and land resource protection goal. In land use planning process, the key to realize harmonious development between urban and rural is to carry out pothook of city construction land increase and rural construction land decrease. This paper discussed the theory, methods, techniques of the policy of pothook of city construction land increase in land use planning, and took Qinghe county of Hebei province as a example, providing pothook in the new round land use planning with a reasonable method. Research content of this paper are as follows
Firstly, per capita indicator method, trendy forecasting method and Gray GM(1,1) model were applied to predict the demand of urban construction land. The result shows that urban construction land area in Qinghe county will be 3400.57hm~2. Urban construction land area was 2274.63hm~2 in 2009. According to the construction land demand, 1125.94 hm~2 land will be added to urban construction land area. However, there is only 561.95hm~2 land for development. So the remaining 563.99hm~2 has to be given by pothook.
Secondly, based on the population in a certain period, rural resident area was calculated. Then we can get the extent of the rural resident which can be consolidated. Considering that there are lots of other factors restricting the consolidation potential of rural resident, analytic hierarchy process was used to establish index system restrained by economical, social and land resources. The index weights were calculated by using AHP method. By using the above methods, the consolidation potential of rural resident is 2614.54hm~2.Then cutting the area which must be removed and the area which has to be arranged for the residents,the remaining 925.33hm~2 is the pothook potential. Compared with pothook demand(563.99hm~2) , we can see that it can meet the demands of pothook.
Finally, consolidation area of rural resident was calculated. The consolidation area of rural resident was divided into three parts, area which must be removed, area which has to be arranged for the residents and area arranged for pothook. Arable land grading and appraisal method was adopted to realize the requisition-compensation balance. By this method, we can ensure the quality of the arable land which is consolidated by the rural resident. The grade of the new arable land was evaluated according to the related standard and technical provision. Then overlay the new construction land and arable land grading map, the area of every grade of arable land occupied by new construction land would show up. Calculate the grade conversion coefficient according to agricultural land natural utilization index and production capacity of crops. At last, we can get the area of the rural areas consolidation which is 2269.32hm~2.
采用人均定额法、趋势预测法、灰色系统预测法多方法综合预测规划末期清河县城镇建设用地需求规模为3400.57hm~2,根据2009年现状城镇用地规模、规划期间需新增建设用地规模,结合上级规划下达新增指标,得到563.99hm~2的需求空间需要通过挂钩予以解决。
农村建设用地整理复垦潜力按照人均农村居民点用地标准计算,考虑到制约农村居民点整理潜力还有其他很多因素,从经济因素、社会因素和土地资源因素3个方面进行分析,建立农村居民点整理经济、社会、土地资源因素限制下的指标体系,采用层次分析法(AHP)确定各指标权重,通过计算,得到农村建设用地整理复垦的现实潜力为2614.54hm~2。核减掉义务缩减量359.47hm~2、农村安置区规模为1329.74hm~2,即为挂钩潜力规模925.33hm~2,与挂钩需求规模563.99hm~2比较可知,能满足挂钩的需求。
最终需要拆旧的农村居民点规模,农村建设用地整理规模分为两部分,规划必须完成的义务缩减量、安置区和挂钩建新需拆旧规模。挂钩需拆旧规模根据建新占用耕地的等别和规模,按照按等折算的方法,确定为1909.85hm~2,而清河县规划必须完成的义务缩减量为359.47hm~2,从而得到应整理的农村建设用地为2269.32hm~2才能满足城镇用地发展的需求。
At present our country is in the stage of accelerating industrialization and urbanization, land resources scarcity and the unreasonable structure has restricted the development of economy and society. Urban construction land is in a tense contradiction of supply and demand, whereas rural resident land is used in low efficiency, which have seriously affected the effective use of land resources and land resource protection goal. In land use planning process, the key to realize harmonious development between urban and rural is to carry out pothook of city construction land increase and rural construction land decrease. This paper discussed the theory, methods, techniques of the policy of pothook of city construction land increase in land use planning, and took Qinghe county of Hebei province as a example, providing pothook in the new round land use planning with a reasonable method. Research content of this paper are as follows
Firstly, per capita indicator method, trendy forecasting method and Gray GM(1,1) model were applied to predict the demand of urban construction land. The result shows that urban construction land area in Qinghe county will be 3400.57hm~2. Urban construction land area was 2274.63hm~2 in 2009. According to the construction land demand, 1125.94 hm~2 land will be added to urban construction land area. However, there is only 561.95hm~2 land for development. So the remaining 563.99hm~2 has to be given by pothook.
Secondly, based on the population in a certain period, rural resident area was calculated. Then we can get the extent of the rural resident which can be consolidated. Considering that there are lots of other factors restricting the consolidation potential of rural resident, analytic hierarchy process was used to establish index system restrained by economical, social and land resources. The index weights were calculated by using AHP method. By using the above methods, the consolidation potential of rural resident is 2614.54hm~2.Then cutting the area which must be removed and the area which has to be arranged for the residents,the remaining 925.33hm~2 is the pothook potential. Compared with pothook demand(563.99hm~2) , we can see that it can meet the demands of pothook.
Finally, consolidation area of rural resident was calculated. The consolidation area of rural resident was divided into three parts, area which must be removed, area which has to be arranged for the residents and area arranged for pothook. Arable land grading and appraisal method was adopted to realize the requisition-compensation balance. By this method, we can ensure the quality of the arable land which is consolidated by the rural resident. The grade of the new arable land was evaluated according to the related standard and technical provision. Then overlay the new construction land and arable land grading map, the area of every grade of arable land occupied by new construction land would show up. Calculate the grade conversion coefficient according to agricultural land natural utilization index and production capacity of crops. At last, we can get the area of the rural areas consolidation which is 2269.32hm~2.
引文
[1] Parker Andrew. Patterns of federal urban spending : central cities and their suburbs , 1983～1992 [J] Urban Affairs Review , 1995 , 31(2) :184～205.
[2]王君,朱玉碧,郑财贵.对城乡建设用地增减挂钩运作模式的探讨[J].农村经济, 2007(8): 29~31.
[3]周小平.“挂钩”专项规划的几个问题[J].中国土地,2009(12):54
[4]郧文聚,杨红.农村土地整治新思考[J].中国土地,2010(2~3):69~71
[5]杨海钦.中原城市群建设中实施城乡建设用地增减挂钩问题研究[J].河南师范大学学报(哲学社会科学版), 2010(3): 161~164
[6]郝晋珉.本质是优化利用空间[J].中国土地,2010(6):14~17
[7]邱继勤,邱道持,石永明.城乡建设用地挂钩指标的市场配置[J].城市问题,2010(7):66~69
[8]杨巧玲.对城镇与农村建设用地挂钩政策的探讨[J].安徽农业科技,2007(2):536~538
[9]朱华燕.(农村居民点整理挂钩中的权属调整问题探讨[J].江苏商论.2006(7): 157~159
[10]张宇,欧名豪.钩,该怎么挂——对城镇建设用地增加与农村建设用地减少相挂钩政策的思考[J].中国土地,2006(3):23.
[11]姚慧,郑新奇.城镇建设用地增加与农村居民点减少挂钩的动态评价初探——以济南市为例[J].水土保持研究.2006.6(13)
[12]买晓森,杨庆媛*,马寅华,王兆林,鲁春阳(城乡建设用地增减挂钩分析———以重庆市沙坪坝区为例)[J].安徽农业科学.2007(8):2377~2379
[13]张怡然,邱道持,李艳(农村集体建设用地集约利用面临的挑战与对策——以渝东北11区县为例)[J].中国农学通报.2010,26(15):437~441
[14]张静.城乡建设用地增减挂钩研究——以四川省乐山市为例[D].西南大学硕士学位论文,2010.
[15]朱琳.城乡建设用地增减挂钩政策研究[D].西南大学硕士学位论文,2010.
[16]国发[2010]47号国务院关于严格规范城乡建设用地增加挂钩试点切实做好农村土地整治工作的通知
[17]田春华.“挂钩”统筹城乡的新工具[J].中国土地, 2007,(8):18~21
[18]陶佩君.农村发展概论.北京:中国农业出版社,2004.8,26～33。
[19]陈美球,吴次芳.论乡村城市化与农村居民点用地整理.经济地理.1996.6,97～100
[20]张风丽.新疆农村居民点整理研究[D].乌鲁木齐:新疆农业大学,2005.
[21]石丹林.农村经济学[M].西南财经大学出版社,1987.6
[22]许学强,周一星,宁越敏.城市地理学[M].北京:高等教育出版社,1997.7.
[23]张卫民.北京城市可持续发展综合评价研究[D].硕士学位论文.北京:北京工业大学,2002.2~3)
[24]严金明,钟金发,等.土地整理[M].北京:经济管理出版社,1998.)
[25]张正峰,赵伟.农村居民点整理潜力内涵与评价指标体系[J].经济地理,2007,27(1):137~140.
[26]张凤荣,张琳.耕地保护如何纳入征集考核体系[J].中国土地, 2006, (8): 10~11.
[27]白钰.基于可持续发展内涵的城乡建设用地增减挂钩分析[J].2009年中国土地学会学术年会论文集,2009)
[28]于雷,周勇,郧文聚,夏天基于农用地分等成果的耕地占补平衡按等折算
[29]李占军,范之安等.挂钩政策下农村居民点整理模式与对策研究——以山东省泰安市为例[J].山东农业大学学报,2007,(1):32~ 34.
[30]刘宗连.新农村建设背景下农村土地整理研究[J]安徽农学通报.2006,12(11):12~13
[31]王丽英.关于城乡建设用地增减挂钩的思考[J].国土资源科技管理,2007(6):154,155~158.
[32]田春华.“挂钩”统筹城乡的新工具[J].中国土地, 2007,(8):18~21
[33]杨巧玲.对城镇与农村建设用地挂钩政策的探讨[J].安徽农科技,2007(2):536~538. {34}郭万春,邓爱珍,林建平.城镇建设用地增加与农村建设用地减少挂钩的探讨[J].广东土地科学。2008,7(4): 4~8.
[35]城乡建设用地增减挂钩试点管理办法.国土资发[2008]138号文
[2]王君,朱玉碧,郑财贵.对城乡建设用地增减挂钩运作模式的探讨[J].农村经济, 2007(8): 29~31.
[3]周小平.“挂钩”专项规划的几个问题[J].中国土地,2009(12):54
[4]郧文聚,杨红.农村土地整治新思考[J].中国土地,2010(2~3):69~71
[5]杨海钦.中原城市群建设中实施城乡建设用地增减挂钩问题研究[J].河南师范大学学报(哲学社会科学版), 2010(3): 161~164
[6]郝晋珉.本质是优化利用空间[J].中国土地,2010(6):14~17
[7]邱继勤,邱道持,石永明.城乡建设用地挂钩指标的市场配置[J].城市问题,2010(7):66~69
[8]杨巧玲.对城镇与农村建设用地挂钩政策的探讨[J].安徽农业科技,2007(2):536~538
[9]朱华燕.(农村居民点整理挂钩中的权属调整问题探讨[J].江苏商论.2006(7): 157~159
[10]张宇,欧名豪.钩,该怎么挂——对城镇建设用地增加与农村建设用地减少相挂钩政策的思考[J].中国土地,2006(3):23.
[11]姚慧,郑新奇.城镇建设用地增加与农村居民点减少挂钩的动态评价初探——以济南市为例[J].水土保持研究.2006.6(13)
[12]买晓森,杨庆媛*,马寅华,王兆林,鲁春阳(城乡建设用地增减挂钩分析———以重庆市沙坪坝区为例)[J].安徽农业科学.2007(8):2377~2379
[13]张怡然,邱道持,李艳(农村集体建设用地集约利用面临的挑战与对策——以渝东北11区县为例)[J].中国农学通报.2010,26(15):437~441
[14]张静.城乡建设用地增减挂钩研究——以四川省乐山市为例[D].西南大学硕士学位论文,2010.
[15]朱琳.城乡建设用地增减挂钩政策研究[D].西南大学硕士学位论文,2010.
[16]国发[2010]47号国务院关于严格规范城乡建设用地增加挂钩试点切实做好农村土地整治工作的通知
[17]田春华.“挂钩”统筹城乡的新工具[J].中国土地, 2007,(8):18~21
[18]陶佩君.农村发展概论.北京:中国农业出版社,2004.8,26～33。
[19]陈美球,吴次芳.论乡村城市化与农村居民点用地整理.经济地理.1996.6,97～100
[20]张风丽.新疆农村居民点整理研究[D].乌鲁木齐:新疆农业大学,2005.
[21]石丹林.农村经济学[M].西南财经大学出版社,1987.6
[22]许学强,周一星,宁越敏.城市地理学[M].北京:高等教育出版社,1997.7.
[23]张卫民.北京城市可持续发展综合评价研究[D].硕士学位论文.北京:北京工业大学,2002.2~3)
[24]严金明,钟金发,等.土地整理[M].北京:经济管理出版社,1998.)
[25]张正峰,赵伟.农村居民点整理潜力内涵与评价指标体系[J].经济地理,2007,27(1):137~140.
[26]张凤荣,张琳.耕地保护如何纳入征集考核体系[J].中国土地, 2006, (8): 10~11.
[27]白钰.基于可持续发展内涵的城乡建设用地增减挂钩分析[J].2009年中国土地学会学术年会论文集,2009)
[28]于雷,周勇,郧文聚,夏天基于农用地分等成果的耕地占补平衡按等折算
[29]李占军,范之安等.挂钩政策下农村居民点整理模式与对策研究——以山东省泰安市为例[J].山东农业大学学报,2007,(1):32~ 34.
[30]刘宗连.新农村建设背景下农村土地整理研究[J]安徽农学通报.2006,12(11):12~13
[31]王丽英.关于城乡建设用地增减挂钩的思考[J].国土资源科技管理,2007(6):154,155~158.
[32]田春华.“挂钩”统筹城乡的新工具[J].中国土地, 2007,(8):18~21
[33]杨巧玲.对城镇与农村建设用地挂钩政策的探讨[J].安徽农科技,2007(2):536~538. {34}郭万春,邓爱珍,林建平.城镇建设用地增加与农村建设用地减少挂钩的探讨[J].广东土地科学。2008,7(4): 4~8.
[35]城乡建设用地增减挂钩试点管理办法.国土资发[2008]138号文
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