- 协同推进国土空间治理、深入赋能区域高质量发展的全域土地综合整治转型
- 文章编号：1009-6000(2026)05-0010-08
- 中图分类号：F321.1 文献标识码：A
- Doi：10.3969/j.issn.1009-6000.2026.05.002
- 项目基金：国家自然科学基金项目（72373153）；中国人民大学科学研究基金项目（25XNN016）。
- 作者简介：周扬，教授，博导，中国人民大学农业与农村发展学院，研究方向为土地利用与土地整治、耕地保护与粮食安全、农村发展与乡村振兴；
卢艳霞，博士，中规院（北京）规划设计有限公司研究员，研究方向为耕地保护与土地利用管理。
- 制度困境与路径重构：全域土地综合整治的底层逻辑与动力机制研究
- Institutional Dilemmas and Path Reconstruction: Underlying Logic and Driving Mechanisms of Comprehensive Territorial Land Consolidation
- 周扬 卢艳霞
- ZHOU Yang LU Yanxia
- 摘要：
全域土地综合整治被赋予优化国土空间格局、保障粮食安全、支持乡村振兴的多重战略使命，然而政策实践普遍陷入“上热下冷”的动力衰减困局。文章基于“制度—利益—行动者”整合性分析框架，系统剖析了整治动力衰竭的深层机理。研究发现，当前困境的根源在于三重结构性冲突：一是底层逻辑错位，整治实践被工具理性主导，异化为追求指标产出的“工程经济”；二是央地权责失衡，中央战略部署与地方财政能力、长期综合效益与短期政绩考核之间形成持续性张力；三是利益格局固化，地方政府深陷“土地金融”路径依赖，村集体与农民权益实现通道狭窄，市场主体在风险与收益错配下选择观望或短期套利。破解困局的关键在于推动从“以地谋利”向“以治促兴”的范式转型，通过设立中央专项基金、优化指标配置并强化收益反哺刚性约束、深化产权改革、做实村集体经济组织并构建协商共治机制，重构激励相容、主体能动、运行有效的可持续动力系统。 - 关键词：
全域土地综合整治；乡村全面振兴；制度困境；底层逻辑；路径重构 - Abstract: Comprehensive territorial land consolidation, tasked with spatial optimization, food security, and rural revitalization, faces motivation attenuation marked by “central fervor versus local inertia”. Using an “institution-interests-actors” framework, this study diagnoses three structural conflicts: underlying logic misalignment—instrumental rationality reduces consolidation to quota-driven “project economy” rather than value-rational spatial governance; central-local imbalance—tensions between strategic mandates and fiscal capacity, long-term benefits and short-term appraisals; and interest solidification—local governments’ “land finance” path dependence, farmers’ constrained rights realization, and market actors’ risk-induced wait-and-see or arbitrage. Resolving this requires a paradigm shift from “land-based development” to “governance-led revitalization”, reconstructing an incentive-compatible system via central funds guiding value rationality, county-level quota optimization with rural revenue reflux, property rights reforms securing farmers’ long-term gains, strengthened village collectives, and consultative co-governance. This study offers an analytical tool and policy insights for territorial governance modernization and rural revitalization.
- Key words: comprehensive territorial land consolidation; comprehensive rural revitalization; institutional dilemmas; underlying logic; path reconstruction