控制权与空间发展权视角下区域产业用地布局优化与治理研究

受“行政区经济”壁垒制约，跨行政区产业用地治理容易引发土地配置低效与治理碎片化问题，该问题也成为长三角一体化进程中的核心痛点。基于控制权与空间发展权耦合视角，文章旨在构建跨区域产业用地优化空间治理的分析框架，并通过中新嘉善现代产业园作为实证样本开展案例剖析。研究发现，目标设定权、检查验收权、激励分配权存在层级碎片化特征，需与规划提案权、审批监管权、收益厘定权精准匹配，依靠权力分配与绩效联动机制弥合事权与物权脱节问题。其中，上级政府上收核心管控权限，倒逼地方用地发展从增量扩张转向存量盘活，空间收益由土地规模红利转向集约提质升级。地方政府通过控制权分层分包、市场化政企合作，适度出让部分收益厘定权引入市场资源，依托“亩均论英雄”改革平衡经济增速、产业升级与生态保护等多重诉求。这种政企合作与权责精细化配置模式可在不调整行政区划的基础上重构收益分配格局，进而为跨行政区产业用地治理、国土空间存量整治与项目精准准入提供理论支撑与实践参考。

Optimal utilization of industrial land amid a regional scale is often found constrained by administrative boundaries in the Yangtze River Delta. This has led to regional fragmentation and uneven land resource distribution, thereby undermining regional integration and the progressive development among prefectures. Against this background, this study constructs a comprehensive framework for spatial governance and industrial land layout optimization based on a hybrid framework consisting of control rights and spatial development rights. It takes the China-Singapore Jiashan Modern Industrial Park as an empirical case to substantiate the research objectives. This study demonstrates that goal-setting power, supervision power, and decision-making power present obvious fragmentation across administrative levels. To address this issue, governance powers should be aligned with planning proposal power, interrogation power, and distribution power. Hence, the establishment of a matching mechanism combining power allocation and performance evaluation can effectively bridge the mismatch between administrative powers and property rights in regional land management. Under the institutional constraint of administrative subcontracting, higher-level governments have taken back core regulatory powers, forcing local governments to abandon the extensive mode of incremental land expansion and fully tap the potential of existing land stock. Correspondingly, the source of spatial benefits has shifted from land scale dividends to dividends generated by intensive land use and high-quality development. In practice, the local government adopts hierarchical division of control rights and market-oriented governance approaches, which appropriately transfers the revenue distribution rights to introduce social and market resources. It also applies a reform denoted by “evaluating enterprises by average output” to coordinate economic growth, industrial upgrading, and ecological protection, to achieve a more balanced development of multiple goals. This governance model featuring state-business collaboration and refined allocation of powers and responsibilities can rebuild the regional revenue distribution system without adjusting existing administrative divisions. Generally, this study enriches the conceptualization of regional spatial governance by integrating control rights and spatial development rights within a hybrid framework. It also provides robust theoretical support and practical references for crossboundary industrial land governance, the remediation of underused territorial space, and precise project admission in urban agglomerations. This integrated analytical perspective complements the existing theoretical research on regional spatial governance. Additionally, it delivers actionable experience for cross-jurisdictional industrial land management, stock land renovation, and targeted project access in integrated urban agglomerations across China.