法团主义视角下珠三角存量建设用地治理研究--以广州市番禺区为例

The Research on the Governance of Stock Construction Land in the Pearl River Delta Region Based on Corporatism: A Case Study of Panyu Distrcit, Guangzhou

在考察珠三角存量建设用地再开发的政策与实践基础上,分析了再开发的制度安排、实施结果,认为存量建设用地治理变迁的背后是空间治理结构的转型。运用法团主义分析工具,构建了珠三角存量建设用地治理变迁的制度分析框架,在以"分权"为特征的体制转型过程中,政府、市场与社会力量此消彼长,不同的力量组合构成不同的治理模式,同时也导致了不同的空间治理方式。从"国家法团主义"到"地方法团主义"再到"社会法团主义"的治理结构变迁下,存量建设用地治理的政策与实施特征也呈现不同的特点。从"国家法团主义"下对违法用地的承认与处理以及放弃对土地一级市场的垄断,到"地方法团主义"下地方政府占据主导作用,压制了市场和社会的力量导致再开发放缓,再到"社会法团主义"下社会力量崛起,再由开发房地产导向转变为全面提升人居环境导向。研究应用广州市番禺区的存量建设用地再开发历程,对再开发过程中的权力结构重构、利益协调机制以及实施情况进行了实证研究。研究结果验证了理论分析框架。

This paper analyzes the policies and practices of stock construction land redevelopment in the Pearl River Delta Region （PRD）, explores the institutional arrangements and studies the implementation results. It is found that the transformation of spatial governance structure led to the change of stock construction land governance. This paper uses corporatism as a tool to develop the framework of policy analysis and studies the evolution of stock construction land governance in Panyu District, Guangzhou. During the process of institutional transformation characterized by decentralization, the roles that the government, market and society played in the spatial governance were always changing, from ＇state corporatism＇ to ＇local corporatism＇ and then ＇social corporatism＇. In different phases, the feature of redevelopment policies and practices varied. The ones based on the state corporatism legalized the illegal construction land and abandoned the monopoly on the primary land market while the ones based on local corporatism allowed the government to play the leading role suppressing the market and social forces, but resulted in the slowdown of redevelopment. As the social forces rose, the real estate- oriented redevelopment finally changed into the living environment-oriented one with the goal of comprehensive improvement.