集体留用地的土地发展权：国土空间规划背景下的思考

农村集体留用地是我国征地补偿过程中形成的一种特殊补偿制度，在保障失地农民长期收益、带动集体经济发展、促进乡村振兴方面发挥着重要作用。然而，由于集体土地权能的缺陷与模糊，留用地土地发展权受到一定程度的抑制，不利于乡村地区的可持续发展。以土地发展权为视角，首先从城乡土地二元制度、传统法定规划空间管制、开发利用模式三方面分析了集体留用地土地发展权受抑制的表现和原因。然后进一步深入分析了留用地开发利用与“总规-详规-实施”多层次国土空间规划的关系，总结出各层次国土空间规划中留用地开发利用存在的核心问题。最后通过借鉴厦门、杭州、广州等城市多元化的留用地开发利用模式，提出国土空间规划管制与开发利用模式的联动创新是推动新时期乡村振兴，促进城乡融合高质量发展的关键路径。

Land Development Rights of Collective Reserved Land in the Territorial Spatial Planning

Rural collective reserved land is a special compensation system emerged in the process of land acquisition in China and has been playing an important role in ensuring long-term income for landless farmers, developing a collective economy, and promoting rural revitalization. However, due to the defects and ambiguities in the rights of collective land, the right to development of reserved land has been restrained to a certain extent, which is not conducive to the sustainable development of rural areas. From the perspective of land development rights, this paper first analyzes the performance and reasons for the restraint of development rights in collectively reserved land from three aspects: the dual system of urban and rural land, traditional legal planning space control, and the development and utilization mode. In addition, the relationship between the utilization of the reserved land and the multi-level territorial spatial planning of "master plan, detailed plan, and implementation plan" is further analyzed, and the core problems of the utilization of the reserved land in the space planning of each level are summarized. Finally, by learning from the diversified development and utilization patterns of reserved land in Xiamen, Hangzhou, and Guangzhou, it is proposed that the linkage of space planning control and utilization pattern is a key path to maximize the benefits of development rights of reserved land in order to promote the efficient development of urban-rural integration.