产权政策视角下废弃矿井采矿用地再开发模式研究

Research on redevelopment model of abandoned mining land from the perspective of property right policy

废弃矿井再利用已成为资源型城市实现功能转型的主要路径,矿井地面生产区采矿用地的再开发属于城市存量工业用地更新的范畴,是一个伴随产权转移的空间转型过程。通过分析相关产权政策与废弃矿井再开发模式之间的关联性,探讨制度对空间的影响,提出对未来发展的政策建议。通过系统梳理自1990年以来国家、地方层面的产权政策,并以该时段内不同时期的再开发实践为例,讨论不同产权政策背景下再开发利用模式的差异,从财务平衡的视角对政策的效力进行解释。研究表明,我国的产权政策制定从“规制型”向“引导型”发展,为废弃矿井采矿用地的再开发不断创造实现财务平衡的制度保障,但目前政策偏重于关注降低产权转移的交易成本,对后期运营收益保障不足。未来地方性政策应加强对非盈利性项目的财务缺口进行制度保障,以便进一步提升再开发项目的公共价值。结合产权政策的调整,废弃矿井再开发模式也将走向主体多元、价值多元的综合模式。

The reuse of abandoned mines has become the main path for resource-based cities to realize functional transformation.The redevelopment of mining land belongs to the renewal of urban stock industrial land,which is a spatial transformation process accompanied by property right transfer.The research on the evolution of the relationship between relevant property rights policies and abandoned mine redevelopment model is helpful to understand the impact of the policy and put forward suggestions for future policies.This paper combs the national and local property rights policies since 1990,takes the redevelopment practice in different times of this period as an example,discusses the differences of redevelopment and utilization modes under the background of different property rights policies,and explains the effectiveness of the policy from the perspective of financial balance.The research shows that China’s property right policymaking has developed from“regulatory”to“guiding”to continuously create an institutional guarantee to achieve financial balance for the redevelopment of abandoned mining land.However,the current policy focuses on reducing the transaction cost of property right transfer and insufficient guarantee for the later operation income.In the future,local policies should strengthen the institutional guarantee for the financial gap of non-profit projects,so as to further enhance the public value of redevelopment projects.Combined with the adjustment of property rights policy,the redevelopment model of abandoned mines will also move towards a comprehensive model with multiple subjects and values.