基于整体性视角的社区更新:框架、模式与案例——以佛山桂华邨社区为例

Community Regeneration Based on a Holistic Perspective:A Case Study of Guihua Community,Foshan

现行的政府单一主导、政府与开发商合作的社区更新模式与业主的自主更新需求产生了矛盾。针对现有研究对社区更新的系统性缺乏关注的问题,本文从整体视角出发,通过构建“参与主体—程序设计—法规政策—资金调配”四维框架,分析现行社区更新模式与业主自主更新需求产生冲突的内在机制。在优化现有模式的基础上,提出三种适应业主自主更新需求的理论模式。桂华邨业主自主更新失败的实践案例证明了本文所提出的四维框架的重要性。最后,从政府视角对我国社区更新机制提出优化建议。

There are two prevalent community regeneration models in current urban regeneration process:the government-dominated model and the government-developer-partnership model.Obviously,the role of the citizens,especially those who live in the community has not been widely acknowledged and was downplayed.As a result,research and practice on the active participation of property owners in community regeneration has become a hot topic in the community of researchers and practitioners in recent years.However,their efforts tend to go to another extremity that have overemphasized importance of community members and put overwhelming attention to the patterns of benefit allocations among different stakeholders,failing to recognize the indispensable role of other parts in the process of regeneration,especially the role of the government,such as the construction of a regeneration process with pluralistic and coordinated participation,the provision of reasonable funding allocation,and the establishment of public interest-oriented laws in the framework of community regeneration,as well as the institutional guarantee function for owners to renew themselves.Therefore,this paper attempts to build a four-dimensional conceptual framework based on theoretical references and a holistic perspective.The framework is“participants-program design-legal system-fund allocation”.The overall framework is used to analyze the conflicts between the current model and the owner's need for autonomous regeneration,and to address the problem and propose three models of community autonomous regeneration that are more practical and meet different value orientations,based on the combination of existing models.Model 1:A government-led,owner-involved public service model.This model is applicable to communities where public value is dominant and the capacity for autonomous regeneration is weak.It is therefore optimized on the basis of a single government-led model,based on public input from the government and on the leadership of the regeneration process,which strengthens the right of owners to consult on regeneration programmes.Model 2:Ownerled self-regenerated model.This model is applicable to communities where community development values dominate and where owners have the greatest capacity and willingness to regenerate,and is the most owner-led community regeneration model.With the assistance of a third-party professional organization,the owner leads the entire process of community renewal without changing owner composition or land use.Model 3:A semi-marketization model that combines owners and developers.This model applies to communities where economic value is dominant and economic strength is strong.This model is an optimization of the government-developer combination model,which coordinates the balanced relationship between owners and developers through land concessions and financial security.This paper examines the above theoretical framework by analyzing the case of Guihua Community practice with the holistic framework.The community of Guihua Community in Foshan,Guangdong Province,as a typical old community,has a strong desire to renew itself,with the owners taking the initiative to seek government assistance.However,the final renewal failed due to institutional deficiencies such as inadequate third-party organizations,lack of clear government procedural guidance,lack of public funding assistance,and conflicts between local policy principles and national laws.As a case of failure,it proves the theme of the study,the success for owner-autonomous regeneration not only to strengthen autonomy,but also to construct mechanisms to maintain owner-led regeneration from a holistic perspective,and validates the rationality of the research framework presented in this paper.Based on the analytical results,this paper proposes the following policy suggestions for China’s community regeneration from the government’s perspective.Firstly,respecting the owners as the subjects of community development,the government should give the community the right to autonomy and manage community regeneration affairs independently and actively guide third-party professional organizations to participate in community regeneration,so as to cultivate the community’s ability to self-organize and assist the community in completing regeneration affairs.Secondly,the government should design a fair and just,clear and operable community regeneration policy process to meet diversified needs of regeneration.Thirdly,it should encourage social welfare funds to join in community regeneration,and the government should innovate the ways to provide community regeneration funds to guide the development direction of community regeneration.Last but not least,in conjunction with existing local policies and legislative practices,actively explore the formulation of a special law on community regeneration,and amend the original laws and regulations to guarantee the implementation of community regeneration.