王瑜 刘迪

WANG Yu, LIU Di

自由贸易园区（下称自贸园区）是国家或独立关税地区在其境内划定的特定区域，实行特殊优惠税收和监管政策，核心使命是通过制度创新推动高水平开放。我国22 个自贸园区在空间治理方面面临以下困境：规划环节缺乏全国统筹的立法与统一政策框架，导致自贸园区政策碎片化、产业同质化，区域协同不足；建设环节存在土地出让“一刀切”与企业需求错配、开发工具碎片化等问题；运管环节受制于产权分割限制和退出机制缺失，阻碍土地资源优化配置。本文通过对洛杉矶、新加坡、香港、鹿特丹、科隆、迪拜6 个发展较为成熟的自贸园区进行比较研究和经验提炼，提出构建覆盖规划—建设—运管全生命周期的自贸园区空间治理“中国方案”：通过国家专项立法破除制度壁垒，强化短期用地与土地用途快速转换机制；构建总区—分区联动网络，以全国自贸园区发展规划的宏观统筹结合白名单供地等微观创新，实现制度创新与空间治理的动态适配。

A Free Trade Zones (FTZ) refers to a designated area within a country or customs territory that applies preferential tax and regulatory policies to advance highlevel openness through institutional innovation. China’s 22 FTZs face spatial governance challenges: at the planning stage, the lack of national-level legislation and a unified policy framework results in policy fragmentation, industrial homogeneity, and weak regional coordination; during construction, rigid land allocation mismatches enterprise needs and development tools remain fragmented; in operation and management, fragmented property rights and absent exit mechanisms impede efficient land use. Based on comparative study of six mature global FTZsin Los Angeles, Singapore, Hong Kong, Rotterdam, Cologne and Dubai, this study proposes a “China Model” for full-lifecycle spatial governance across planning, construction, and operation. It advocates specialized national legislation to remove institutional barriers and enable rapid land-use conversion, alongside a central-local coordination network that integrates macro-level FTZ planning with micro-level innovations such as whitelist-based land supply, achieving dynamic alignment between institutional reform and spatial governance.

王瑜，湖南大学建筑与规划学院，博士研究生

刘迪，中国城市规划设计研究院上海分院，副总规划师，正高级工程师。cnup2000@163.com

• 收起