城市更新治理模式的比较与选择

A Comparative Study of Governance Models for Urban Renewal

城市更新是城市改造、重建、再生和延续的过程。从广州城市改造的经验观察,实践中所运用的政府、市场以及混合改造模式都存在治理困境。政府改造模式导致"角色"错位,市场改造模式导致公共利益受损,混合改造模式导致成本外溢。传统的改造模式由于没有将改造成本内部化,不论是政府行为还是市场行为都会产生负外部性。笔者由此提出新的治理模式——利益共同体模式。这种模式区分行动者的不同角色,以产权为纽带,以外部性成本内部化为基础,通过合约安排使政府、开发商和原住地居民组成利益共享、风险共担的共同体。在这样一个"利益共享、风险共担"的新模式运作下,旧城改造不再是单一的政府和市场行为,而是一个兼顾公共利益和私人利益的社区集体行为。这种治理模式符合社会发展与和谐社会的理念,能将旧城改造的成本内部化,使产权人享有真正意义的决策权,有利于社区的可持续性发展。

Urban renewal is the process of urban regeneration and continuous growth. Seen from the experience of Guangzhou, neither the government or the market or the combination of the two is sufficient for the smooth operation of urban renewal. The author thus proposes a new model which, by distinguishing the roles of different parties and internalizing the costs, can achieve contractual arrangements among government, developers and residents on a mutually beneficial and risk pooling basis. That being done, the practice of urban renewal will no longer be a purely government or market behavior but rather a collective community action that balances public and private interests. Such a model is in line with the concept of a harmonious society and will be conducive to the sustainable development of the community.