跨市轨道交通溢价回收策略与多层级管治:以珠三角为例

Land Value Capture and Multi-level Governance for Inter-city Passenger Rail Transit in the Zhujiang River Delta

随着城市化和机动化的发展,跨市轨道交通建设成为应对交通拥堵,引导土地开发与通勤结构,促进区域一体化的策略。面对轨道交通巨额建设运营成本,多层级政府管治(Multi-level Governance)下的投融资模式和溢价回收(Value Capture)策略成为推动跨市轨道交通建设的基础。目前,对跨市交通设施的溢价回收和多层级管治还缺乏系统讨论。以珠三角为例,实证分析跨市轨道交通多层级政府的合作博弈、投融资模式与溢价回收策略,重点论述由"省部合作"向"省市合作"联合开发的溢价回收策略转变。研究发现,珠三角跨市轨道交通联合开发面临土地、规划和财税等制度约束以及政府间利益博弈,省政府主导的"省市合作"交通土地综合开发模式超越单个城市政府,实现区域层面的交通溢价回收,能为中国城际轨道交通融资和多层级管治提供参考。

Under the context of rapid urbanization and motorization in urban China, the demand for multi-jurisdictional passenger transport is becoming increasingly significant for regional integrated development. Following this trend, inter-city passenger rail transit has been viewed by the local governments as an important alternative to driving, particularly when issues of road congestion, land development and regional integration are considered. However, how to obtain the capital to cover huge constructive and operational costs is challenging inter-city passenger rail transit. Current literature has focused on funding for municipal passenger rail transit and the issue of value capture policies and distribution arrangement. The value capture setup for inter-city rail transit has rarely been discussed. In this research, we first review some perceived difficulties and strategies for value capture in China, and then we present a case study of Inter-city Passenger Rail Transit in the Zhujiang River Delta. The case study describes the relevant planning and development processes. In particular, it explains how the funding for this project has evolved from a collaborative effort between Guangdong Provincial Government and The Ministry of Railways to that between the Provincial Government and the relevant municipal governments. The ending arrangement is a new value-capture mechanism for funding the inter-city passenger rail. The innovation of this funding mechanism and the concurrent implementation difficulties are valuable experience for other mega-regions where similar inter-city transport projects have been considered.