- 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)04-0032-08
- 中图分类号：TU984；F292 文献标识码：B
- Doi：10.3969/j.issn.1009-6000.2026.04.005
- 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&ZD114）；教育部人文社会科学研究青年基金项目“产权强度对集体建设用地减量规划实施的影响机制与政策优化”（23Y JCZH065）；浙江省社科规划“党的二十届三中全会和省委十五届五次全会精神研究阐释”专项课题“国土空间规划体系下杭州都市区土地一级发展权配置失衡的测度、机制与优化”（86）；国家级大学生创新创业训练计划项目（202413021025）。
- 作者简介：郭旭，博士，浙大城市学院国土空间规划学院讲师，上海同济城市规划设计研究院副研究员；
许诺，浙大城市学院国土空间规划学院本科生；
刘晨，清华大学建筑学院博士生；
田莉，通信作者，清华大学建筑学院教授、博导，清华大学土地利用与住房政策研究中心主任，自然资源部智慧人居环境与空间规划治理技术创新中心主任。
- 国土空间规划体系下刚性管控对大都市远郊乡镇发展的制约机制与柔性赋能——以杭州常安镇为例
- The Restrictive Mechanism and Flexible Empowerment of Rigid Control on the Development of Outer Suburban Towns in Metropolitan Areas under the Territorial Spatial Planning System: A Case Study of Chang’an Town, Hangzhou
- 郭旭 许诺 刘晨 田莉
- GUO Xu XU Nuo LIU Chen TIAN Li
- 摘要：
国土空间规划体系通过“五级三类”框架与“三区三线”等刚性约束，保障了国家粮食安全与生态安全，但也使远郊乡镇面临“强约束—弱赋能”的制度性困境。文章构建了“制度—空间—指标”分析框架，以杭州市富阳区常安镇为例，探讨制度、空间、指标三类刚性管控对大都市远郊乡镇发展的制约机制。制度刚性为规划层级传导下资源分配向城市倾斜，远郊乡镇自主性受限；空间刚性为“三区三线”约束，导致发展空间被挤压；指标刚性为远郊乡镇建设用地等指标不足而耕地保护指标过多，约束发展。最后从技术优化、指标交易、空间留白、程序治理等 4 个方面提出柔性赋能路径。 - 关键词：
规划刚性管控；远郊乡镇；制约机制；柔性赋能；大都市地区 - Abstract: The territorial spatial planning system, through the framework of “fi ve levels and three types” and rigid constraints such as the “three zones and three lines”, has ensured national food security and ecological security, but has also placed outer suburban towns in a structural dilemma of “strong constraints – weak empowerment”. This paper constructs an analytical framework of “institution–space–indicators” and, taking Chang’an town in Fuyang district of Hangzhou as a case study, explores the constraint mechanisms imposed by three types of rigid control – institutional, spatial, and indicator – based on the development of outer suburban towns in metropolitan areas. Institutional rigidity is refl ected in the hierarchical transmission of planning, under which resource allocation tends to favor urban areas, thereby limiting the autonomy of outer suburban towns; spatial rigidity is embodied in the constraints of the “three zones and three lines”, which compress development space; indicator rigidity is manifested in the insuffi cient allocation of construction land quotas for peri-urban townships alongside excessive farmland protection indicators, further restricting development. Finally, the paper proposes flexible empowerment pathways from four aspects: technical optimization, indicator trading, spatial reservation, and procedural governance.
- Key words: planning rigid control; outer suburban towns; restrictive mechanism; flexible empowerment; metropolitan areas