热带地理

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尺度重构视角下的土地再开发增值空间分配

何冬华1,2,3(), 杜金莹2, 刘玉亭1(), 杨恒2, 赵楠楠1   

  1. 1.华南理工大学 建筑学院, 广州 510641
    2.广州市城市规划勘测设计研究院, 广州 510060
    3.广东省城市感知与监测预警企业重点实验室, 广州 510060
  • 收稿日期:2021-11-22 修回日期:2022-01-04 出版日期:2022-04-01
  • 通讯作者: 刘玉亭 E-mail:276063590@qq.com;ytliu@scut.edu.cn
  • 作者简介:何冬华(1978—),男,广东湛江人,教授级高级工程师,国家注册城市规划师,研究方向为国土空间规划、土地政策研究,(E-mail)276063590@qq.com
  • 基金资助:
    国家自然科学基金项目(41771175);广东省城市感知与监测预警企业重点实验室基金项目(2020B121202019);广州市城市规划勘测设计研究院科技基金项目(RDI220200202129)

Land Value Increment Allocation in Land Redevelopment from the Perspective of Rescaling:A Case Study of the Haizhu Bay Hub Area in Guangzhou

Donghua He1,2,3(), Jinying Du2, Yuting Liu1(), Heng Yang2, Nannan Zhao1   

  1. 1.School of Architecture, South China University of Technology, Guangzhou 510641, China
    2.Guangzhou Urban Planning & Design Survey Research Institute, Guangzhou 510060, China
    3.Guangdong Enterprise Key Laboratory for Urban Sensing, Monitoring and Early Warning, Guangzhou 510060, China
  • Received:2021-11-22 Revised:2022-01-04 Online:2022-04-01
  • Contact: Yuting Liu E-mail:276063590@qq.com;ytliu@scut.edu.cn

摘要:

在存量土地再开发过程中,产生的新增价值(增值空间)分配的合理性,成为影响土地再开发运行效率的关键。从尺度重构视角,构建土地再开发增值空间分配研究框架,以广州海珠湾枢纽地区为例,对自主改造、土地征收和土地整备3种再开发模式,进行尺度跃迁观察,并剖析相应的增值空间分配成效及再开发项目推进情况。研究表明,柔性跃迁的自主改造与刚性跃迁的土地征收,均是基于经济平衡进行的增值空间分配,容易挤压为社会共享的单元增值空间,导致再开发工作难以推进。而中间跃迁的土地整备,通过权力与空间的适配调整,以“储改结合”促进多方合作改造,以“单元”社会平衡为原则,促进增值空间分配的“显性化”,保障为社会共享的单元增值空间。基于此,提出土地再开发增值空间分配合理化的路径,包括:构建上级政府权威的土地整备统筹机制,构建成片连片的土地整备单元载体,构建社会平衡的显性化分配机制。

关键词: 尺度跃迁, 增值空间分配, 权力-空间, 土地再开发, 广州市

Abstract:

The key factor that influences the progress and operational efficiency of a reserved land redevelopment program is the rationality of land value increment allocation. Scaling-up has become a type of spatial governance instrument. During land redevelopment, there are three types of scaling-up statuses: self-transformation as flexible scaling-up, land acquisition as rigid scaling-up, and land consolidation as medium scaling-up. This paper establishes a framework for research on land value increment allocation in land redevelopment from the perspective of rescaling, taking Guangzhou Haizhu Bay Transport Hub and its surroundings as a case study. Three redevelopment pattern types (self-transformation, land acquisition, and land consolidation) were observed based on the scope of scaling-up, the effectiveness of land value increment allocation, and progress of redevelopment programs under different scaling-up models. On a plot with single ownership, flexible scaling-up can be regarded as a financially oriented self-transformation. The non-transparent mechanism of land value increment allocation is likely to squeeze society-shared benefits derived from land appreciation of a "unit", which tends to make it difficult to promote self-transformation programs. Rigid scaling-up can be considered as land acquisition under government control. It focuses on land as a "unit" and financial balance, compiling land acquisition and banking proposals. The powers of multiple stakeholders are not equal during the processes of land acquisition. The non-transparent allocation mechanism of land value increments, led by the local government, is likely to induce new conflict from original landowners, leading to impediments of such programs. In medium scaling-up, land consolidation is based on interactions among the multiple stakeholders. It satisfies practical demands of land redevelopment programs by coordinating interrelationships between power and space. The "banking-transforming" land consolidation approach promotes cooperation on land redevelopment among the multiple stakeholders, and synergistic value-added effects can be attained. The establishment of transparent mechanisms aims to improve fairness and rationality in land value increment allocation, achieving balance between societal and financial benefits in a "unit", and guaranteeing its land supply. This paper proposes three rational paths for land value increment allocation in land redevelopment. From the point of power, it establishes a coordinated mechanism of land consolidation based on authoritativeness of upper governments. From the point of space, it constructs a carrier for a land consolidation "unit". On the aspect of land value increment allocation, it builds up a transparent mechanism with societal-financial benefit balance. In further study on land redevelopment, more attention should be paid to utilizing scaling-up instruments rationally, to transforming space reconstruction patterns, and to innovating transparent allocation mechanisms for land value increments. This application of rescaling theory provides a reference to practical programs for improving the efficiency of land redevelopment, and for promoting area integral high-quality development.

Key words: scaling-up, land appreciation allocation, power-space, land redevelopment, Guangzhou

中图分类号: 

  • TU984.114