城市更新增值分配方式下的空间容量生成探讨

Discussion on the Generation of Space Capacity Under the Mode of Value Adding Distribution of Urban Renewal

空间容量是城市开发建设运营中增值产生和分配的主要载体,不同的城市更新途径指向了不同增值分配方式下的空间容量增长。在中国城市实施城市更新行动进程中,面对既有的巨大规模的城市空间容量,如何在实施可行和容量限制的双向约束条件下,有效提升城市的空间运营,推动城市的高质量发展,是中国城市更新中面临的关键问题之一。本文梳理了土地开发运营增值分配制度中的容量生成路径,分析了城市更新在宏观层面空间容量的增长限制与中微观层面空间容量的生成倾向并存的客观现象,并结合北京的更新案例测算,定量分析不同增值分配途径下的空间容量生成,指出在空间增量客观存在的背景下,应积极完善政策制度以降低更新成本、提高空间运营增值及确保公共利益。

In the research of urban spatial capacity generation,the theory of space production has the most profound insight.It reveals the political and economic institutional attribute of space,takes space as a means of production and productivity,and participates in the shaping of cities by political and economic factors such as capital,political power and hierarchy.Examining China’s rapid urbanization process with the theory of spatial production,the added value from the land development,construction and operation is closely related to the generation of spatial capacity,which has become a key issue in urban development.After the reform and opening up of Chinese cities,in the process of urbanization and industrialization,the implementation of land system,fiscal and taxation system and city planning has made the field of urban construction presenting a super large-scale space production over 40 years.When the city changes from incremental expansion to stock renewal,the generation of spatial capacity lies in the dual constraints of growth restriction and economic feasibility.Overall,relying on the space construction to add the city value is unsustainable for the future development.With the slowdown of population growth rate and the urbanization process,the total amount existing built space in the cities has filled the requirement from the urban future development to a considerable extent,and even some cities have been seriously oversupplied.Coupled with the profound evolution of urban industrial functions,the impact of the internet economy and the epidemic have led to the low efficiency and idleness of urban space.From the medium and micro perspectives of project implementation,because space capacity is the essential factor for the generation and distribution of the profit in urban construction and operation,the urban renewal still employs the traditional development path and institutional mechanism.The space construction drives profit growth more efficiently than does space operation.In addition,it is a common way to protect the public interests by heading part of the land or the construction to the government in the renewal project.They could be used to supplement the deficiencies in the old development and provide new public services,which also increase the operation cost to be balanced in the renewal.A study to Beijing renewal cases could unveiled the growth of various spatial capacity by different means to increase value,compare the governmental income from land transfer fee and spatial incremental reduction by various modes,such as,land collection and storage bidding,auction,land agreement transfer or independent renewal.The data are showing at the existing development situation,the trend from space construction to space operation is inevitable.In this transition process,the following issues deserve further discussion:1)Although the spatial capacity of urban renewal is facing increasingly urgent growth constraints at the macro level,for some urban areas with sustainable development power,the value adding mode of spatial construction and spatial capacity growth will exist objectively for a long time.A rational restricting spatial increment and actively improving spatial efficiency are important concerns in making policy.2)How to release the renewal power and protect the public interest by coordinating land,finance and taxation and city planning system is the key in the process of urban renewal management.At present,there are still many works to connect planning management to the corresponding land finance and taxation systems.3)It is worthy to explore the path to capture the value to the surrounding environmental development from public facilities,so as to form a circulation to recycle the gain to ensure the public interest and a sustainable development of the city.At the same time,the policy optimizing the usage of the stock space and improving the space utilization efficiency need to explored.