南京江北新区储备土地效益提升的政策建议

Suggestions for Increasing Reserve Land Benefit in Nanjing North District

南京江北新区土地储备存在着工业用地占比大但地价水平低、经营性用地出让价格波动大且溢价率不高、土地出让强度大且下降趋势显著等特点。据此,本文结合问卷调研、模型分析以及案例研究,分析了影响江北新区储备土地效益的主要因素,认为在城市土地储备市场的建设中需要更加重视土地市场环境、地块周边基础设施以及收益分配机制等方面的完善,并结合南京江北新区未来发展以及有关国家级城市新区土地储备制度建设的经验,提出了推进南京江北新区储备土地效益提升的政策建议,主要是(1)创新储备制度,强化统筹管理。着重是:推进'规划—国土一体化'建设,加强规划、国土工作统筹;厘清各级土地储备机构的关系,建立'四区一城合一'的统一土地储备体制。(2)拓宽储备范畴,提升整体价值。主要是:全域全类别储备,推进以功能区为主导的'大储备';加强棕地治理,提升土地质量。(3)拓宽融资渠道,探索公私合作。重点在于:拓宽融资渠道,建立土地基金;引入社会资本,采用PPP模式进行土地综合性开发。(4)强化市场主导,坚持规划引导。关键在于:合理制定规划,实现土地价值最大化;遵循市场规律,结合已有条件进行多样化的出让。(5)加强配套建设,发挥品牌效应。提高土地一级开发水平,加强投资基础配套建设与格局优化;重项目包装和品牌效应,通过城市大事件营销来提升土地附加价值。

Reserve land in Nanjing North District has some problems.For example,industrial land accounts for a major part but remains at a low price level;profit-oriented land has big fluctuations in remising price and its premium rate is not high;land transfer is strong but the downtrend is significant.Accordingly,based on questionnaire survey,model analysis and case study,this report analyzed the main factors that influence the land benefits in reserve land in Nanjing North District.It finds that more attention should be concentrated on the improvement of land market environment,basic facilities around land plots and the mechanism of profit distribution.Based on the future development of Nanjing North District and the experiences of land reserve system in National City District,some policy suggestions are proposed:(1)innovating land reserve system,strengthening overall management,advancing“planning—land integration”,strengthening the coordination of planning and land management;clarifying the relationship of land reserve institutions at different levels,establishing the integration institution of“four district and one city”;(2)broadening the reserve areas,raising the overall value,focusing on reserves of the full class,promoting Ribbon-led reserves;strengthening the management of brownfield,improving the quality of land;(3)widening the financing channels,exploring public-private partnerships;widening the financing channels,setting up the land fund;introducing social capital,and applying the PPP model for integrated development;(4)strengthening market-oriented,insisting on planning guidance.The key aspect is:rational planning,maximization of land value,following the law of market,and various transfers based on existing conditions;(5)strengthening the construction of supporting facilities,improving brand effect;increasing the level of land development,strengthening investment in infrastructure construction and structure optimization;emphasizing project packaging and branding,and enhancing the added value of land through the marketing of urban event.