研究目的:从央地关系视角,揭示建设项目用地预审制度历次调整背后的逻辑,并提出现行法律框架下进一步改进用地预审的建议.研究方法:文献研究法和对比研究法.研究结果:在"政治集权和经济分权"的体制结构下,中国土地利用和管理同样呈现出一种"土地分权经营和行政集权约束"的特征.国家发展目标的变化直接影响中央对地方土地利用管理行为的要求,同时地方土地利用需求也影响中央政策的调整,央地关系的微妙变化推动了用地预审制度的三次调整.从2001年建设项目用地审批制度建立到2008年进行第二次调整,预审内容呈增加趋势,用地约束逐渐增强.在2016年最新一次修正中,预审内容减少,预审范围缩小,预审阶段行政约束减弱.研究结论:用地预审制度应当顺应中央要求和地方需求作进一步改进完善,适度调整用地预审权限,进一步提高用地预审的标准化和信息化水平.%The purpose of this paper is to analyze the theoretical logic of institutional adjustments in pre-examination of construction land use projects from the perspective of central-local relations, and propose recommendations for the institutional improvement. The literature review and comparative study were employed. Under the "political centralization and economic decentralization" regime, the land use and management in China also presents the characteristic of "decentralized operation and centralized administration constraint". The changes in the national development goals directly affect the requirements for the land use and management, further promoting the three changes of pre-examination. The pretrial contents increased after the twice adjustments since 2001, indicating the land use constraints were tightened. However, the simplification of pretrial content and scale was observed in the latest adjustment in 2016. It is concluded that the institution should be adapted to meet the requirements of central government and local conditions. The jurisdiction of pre-examination should be readjusted properly, and the standardization and information of pre-examination should be improved.
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