国土空间规划背景下城市更新落地的探索--以佛山市南海区夏北村“三旧”改造为例

Exploration of Urban Renewal Implementation Under the Background of Territorial Spatial Planning:A Case Study of“San-Jiu”Reconstruction in Xiabei Village,Nanhai,Foshan

珠江三角洲农村社区“自下而上”的城市化形成了大量低效的集体建设用地,随着区位的提升,都市区的形成和产业结构的升级推动了存量建设用地的更新改造。如何在发展中优化结构、提高存量国土空间资源使用效率、保障公共空间与公共设施落地以及提升城市空间品质?2009年,国家、省、市和地方政府各个层面出台了一系列文件推动珠江三角洲地区的“三旧”改造,但旧改启动十年有余,南海旧村改造始终没有成功落地的项目。本文深入追踪首个进入实施阶段的夏北村永胜小组旧村改造项目,聚焦行政村和自然村改造尺度下的利益分配模型和博弈过程,总结出战略引领、片区统筹,整村改造、分步实施的规划策略。

Over the past 40 years since the reform and opening-up,the Chinese government has been gradually advancing the shift of China from a planned economy to a socialist market economy.The bottom-up urbanization of rural communities in Pearl River Delta caused a large area of low-efficiency collective construction land.With location upgrading,the formation of metropolitan areas and upgrading of the industrial structure have advanced the renewal and transformation of stock construction land.Questions as to how to optimize structures,improve the efficiency of stock territorial space,ensure the implementation of public space and facilities and improve the quality of urban space amid development should be answered.In 2009,a series of documents aiming to advance the“San-jiu”renovation in the Pearl River Delta were issued at the state,provincial,municipal and local governmental levels.By the types of renovation,the“San-jiu”renovation projects can be classified as old rural residence renovation,old workshop renovation and old town renovation.The fastest progress is the transformation of factories into residential projects.Such projects have high returns and fast progress,so they are often referred to as“meat-eating”phenomenon.However,the remaining homestead is difficult to advance due to the complicated ownership issues and the limitation of the plot ratio,which is the so-called“biting the bones”problem.A large number of urban renewal projects that“eat meat and leave bones”lack macrocontrol,and it is difficult for old village reconstruction projects to be successfully implemented.Passively carrying out according to the will of the subject of the transformation has not only led to fragmented point-of-use land development,but also resulted in urban problems such as insufficient public service supporting facilities and insufficient overall urban development.A heavy reliance on the market in“San-jiu”renovation has caused an excessive pursuit of economic interests.Over the past 10 years since the initiation of the“San-jiu”reconstruction,there hasn’t been any successfully implemented old village renovation project in Nanhai District,Foshan City.Following the reform of the territorial and spatial planning system,more stringent regulation and control has been imposed on the increase of construction land,making re-development of stock construction land the main“battlefield”of urban construction.As the origin of the“San-jiu”renovation in the Pearl River Delta,collective construction land renovation in Nanhai District of Foshan City allows the government,villagers and developers to share profits generated from the added value of land capitalization while admitting the asset rights of rural collective land without interrupting existing structure of interests.As such,how to distribute the increased interests among the collective economy of villages,the government and developers has become a core problem in the game of“old renovation”.In this paper,an in-depth investigation of the Yongsheng Group old village renovation project in Xiabei Village,the first of this kind that has entered the implementation phase,was conducted.By focusing on the interest distribution model and game process on administrative and natural village scales,it was found that the whole-village renovation had been facilitated by a clear urban development strategy made by the Nanhai District government.Prior to the developer’s engagement,the government had ensured the post-renovation fulfillment of public interest through“one balance and three predecessors”and district urban design,and guaranteed the distribution of the added value of land among relevant actors through classification of whole-village renovation and phasic implementation.In the end,not only had public interests were protected,but the collective economy of the village and villagers also became long-term income earners by exchanging land into properties.Finally,the paper summarizes feasible planning strategies comprising of strategic guidance,district planning,whole-village renovation and step-wise implementation.