张伟娜

摘  要  人地挂钩是减量规划时代破解用地矛盾的具体落实。有关湖南省人地挂钩平衡研究尚属少见。在省级和地市级2个尺度，预测进城落户新增城镇建设用地需求以及农村居民点用地整治潜力基础上，开展人地挂钩平衡分析。结果表明，至2025年，全省城镇因吸纳农村人口需新增城镇建设用地规模为7.23×104 hm2，而农村居民点用地整理现实潜力16.82×104 hm2。这表明实施人地挂钩可行，吸纳农村人口转移进城，仍可满足土地占补平衡需求。建议在贯彻实施人地挂钩机制过程中，创新财政投入方式，激励农户自愿有偿退出宅基地，同时提高农村居民点用地利用集约程度。

关键词  人地挂钩;农村居民点;城镇化;平衡分析;湖南

中图分类号：P967               文献标识码：A

Balance Analysis on Human-Land Linking in Hunan Province under Background of Reduction Spatial Planning

Zhang Weina

（Hunan Land and Resources Planning Institute， Changsha Hunan 410019）

Abstract： Human-land linking is the concrete strategy of solving land use contradiction in the era of reduction spatial planning. However， there is limited research on human-land linking in Hunan Province. The demand for new urban construction land and the potential for rural residential land consolidation at the provincial and municipal levels were firstly predicted in this paper. Then， the balance analysis of human-land linking was carried out. The results show that the scale of new urban construction land for rural residents and the actual potential of rural residential land consolidation will be 7.23×104 hm2 and 16.82×104 hm2， respectively. Strategy of human-land linking will be effective in Hunan province. In the process of promoting human-land linking policy， it is significant for the governments to innovate the way of financial investment， encourage farmers to transfer homestead property to the governments voluntarily， and improve rural residential land use intensity.

Keywords：  human-land linking; rural settlement; urbanization; balance analysis; Hunan province

2013年《節约集约利用土地规定（草案）》要求我国建设用地管理从增长模式转向增量控制、潜力挖掘和流量管控。原国土资源部等五部委发布的《关于建设城镇建设用地增加规模同吸纳农业转移人口落户数量挂钩机制的实施意见》（国土资发〔2016〕123号）要求在城市化中坚持人地平衡，到2025年要能够全面地建成人地挂钩机制。

《关于进一步用好用活城乡建设用地增减挂钩政策的若干意见》（湘政办发〔2018〕77号），要求大力推进“增减挂钩+国土整治”，建立健全“增量、存量、流量”挂钩制度。当前全省总体上处于快速城镇化阶段，建设用地需求依然强劲。在减量规划背景下，人地挂钩是确保湖南省新型城镇化建设和乡村振兴有序、协调推进的必然选择。……