控制性详细规划调整中的利益相关者诉求研究——以北京市中心城轨道交通站点储备用地的规划调整为例
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摘要
基于公共产品理论和利益相关者理论,以北京市中心城轨道交通站点储备用地1999年、2006年控制性详细规划调整为切入点,分析政府、开发单位、公众、设计单位等利益主体的权力分配与利益诉求。构建多元利益主体博弈的一般框架,指出旧城区控制性详细规划调整过程中以权力分配倾斜化、关注对象区别化、利益诉求差别化为特征的不均衡现状,建议我国旧城区控制性详细规划实践注重:划定底线,制定针对性的保护原则;设施先行,提升土地开发潜力;制度为本,明确可能的利益主体的权责。
According to public goods theory and stakeholder theory, the adjustments of Beijing's regulatory detailed planning on reservation land around rail transit station in inner city between 1999 and 2006 are analyzed, which shows the power and appeal of the stakeholders. The frame of games between stakeholders is made, which indicates three identities of regulatory detailed planning adjustment in old city: the imbalanced power, the diverse object and the different interest. Suggestions are put forward for the practice of regulatory detailed planning in old city.
According to public goods theory and stakeholder theory, the adjustments of Beijing's regulatory detailed planning on reservation land around rail transit station in inner city between 1999 and 2006 are analyzed, which shows the power and appeal of the stakeholders. The frame of games between stakeholders is made, which indicates three identities of regulatory detailed planning adjustment in old city: the imbalanced power, the diverse object and the different interest. Suggestions are put forward for the practice of regulatory detailed planning in old city.
引文
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[3]杨浚.北京控规的1995-2002年——对规划调整工作的回顾与前瞻[J].北京规划建设,2003(2):69-71.YANG Jun.Review on Regulatory Detailed Plan of Beijing from 1995 to 2002[J].Beijing City Planning&Construction Review,2003(2):69-71.
[4]李浩,孙旭东,陈燕秋.社会经济转型期控规指标调整改革探析[J].现代城市规划研究,2007(9):4-9.LI Hao,SUN Xudong,CHEN Yanqiu.Analysis on Renovation about Index Adjustment of Regulatory Detailed Planning in the Transition Period[J].Modern Urban Research,2007(9):4-9.
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[6]晋璟瑶,林坚,杨春志,等.城市居住区公共服务设施有效供给机制研究——以北京市为例[J].城市发展研究,2007,14(6):95-100.JIN Jingyao,LIN Jian,YANG Chunzhi,et al.Study on the Effective Supply Mechanism of Public Facilities of the Residential Areas:A Case about Beijing[J].Urban Studies,2007,14(6):95-100.
[7]张小林.我国农村体育公共产品供给制度与创新[D].长沙:湖南农业大学,2010.ZHANG Xiaolin.System Analysis and Innovation of Rural Sports Public Goods Supply[D].Changsha:Hunan Agriculture University,2010.
[8]吴伟光,楼涛,郑旭理,等.自然保护区相关利益者分析及其冲突管理——以天目山自然保护区为例[J].林业经济问题,2005,25(5):274-286.WU Weiguang,LOU Tao,ZHENG Xuli,et al.Analyzing the Relevant Stakeholders of Nature Reverse Development and Its Conflicts Managing——Take Tianmo Nature Reverse as the Case[J].Problems of Forestry Economics,2005,25(5):274-286.
[9]杜琛琦.市政基础设施施工项目管理利益相关者研究[D].北京:北京大学,2009.DU Chenqi.On Stakeholders in Engineering Project Management of Municipal Infrastructure[D].Beijing:Peiking University,2009.
[10]许莉俊,徐里格.城市规划导向的经营性土地储备近期规划初探——以广州为例[J].规划师,2006(11):61-64.XU Lijun,XU Lige.A Preliminary Study on the Profit-making Landuse Immediate Reserve Plan Combined with the Urban Planning——Take Guangzhou For Example[J].Planner,2006(11):61-64.
[11]林坚,宋丽青,马晨越.旧城区轨道交通站点周边土地利用调控及动因——以北京市中心城储备用地的规划调整为例[J].城市规划,2011(8):14-19.LIN Jian,SONG Liqing,MA Chenyue.Land Use Control around Rail Transit Station in Old Urban District——Case Study of Reserved Land Plan Adjustment in Beijing’s Inner City[J].City Planning Review,2011(8):14-19.
[12]李江云.对北京中心区控规指标调整程序的一些思考[J].城市规划,2003(12):35-40.LI Jiangyun.Discoveries on the Index Adjusting Process of Regulatory Detailed Plan of Beijing Central District[J].City Planning Review,2003(12):35-40.
[13]刘晓钟.共赢的再造——控制性详细规划调整中文物建筑保护的契机[J].北京规划建设,2007(2):58-60.LIU Xiaozhong.Architectural Conservation in Detailed Planning[J].Beijing Planning Review,2007(2):58-60.
[14]晋璟瑶.北京市城市居住区公共服务设施有效供给机制研究[D].北京:北京大学,2007.JIN Jingyao.Effective Supply Mechanism of Public Facilities of the Urban Residential Areas in Beijing[D].Beijing:Peiking University,2007.
[15]付俊文,赵红.利益相关者理论综述[J].首都经济贸易大学学报,2006(2):16-21.FU Junwen,ZHAO Hong.Summary on Stakeholder Theory[J].Journal of Capital University of Economics and Business,2006(2):16-21.
①公共产品理论是公共财政学的重要组成部分,主要研究在符合公平和效率原则的前提下,公共事务的合理管理方式和资金供给方式。这一理论认为,现实的市场经济既非单纯的私人经济,也非单纯的公共经济,而是一种公共经济与私人经济的混合物。而政府公共产品的生产和提供,可以采取多种方式[14]。
②利益相关者理论最初运用于企业管理,认为企业应是利益相关者的企业,包括股东在内的所有利益相关者都对企业的生存和发展注人了一定的专用性投资,同时也分担了企业的一定经营风险,或是为企业的经营活动付出了代价,因而都应该拥有企业的所有权。利益相关者被认为是能够影响一个组织目标的实现,或者受到一个组织实现其目标过程影响的人[15]。
③2002年国土资源部11号令《招标拍卖挂牌出让国有土地使用权规定》中明确提出:“商业、旅游、娱乐和商品住宅等各类经营性用地,必须以招标、拍卖或者挂牌的方式出让。”由此可知,商业、旅游、娱乐和商品住宅等用地应属于经营性用地。
[2]苏腾.“控规调整”的再认识——北京“控规调整”的解析和建议[J].北京规划建设,2007(6):83-85.SU Teng.Study and Advice on Adjustment of Beijing Detailed Planning[J].Beijing Planning Review,2007(6):83-85.
[3]杨浚.北京控规的1995-2002年——对规划调整工作的回顾与前瞻[J].北京规划建设,2003(2):69-71.YANG Jun.Review on Regulatory Detailed Plan of Beijing from 1995 to 2002[J].Beijing City Planning&Construction Review,2003(2):69-71.
[4]李浩,孙旭东,陈燕秋.社会经济转型期控规指标调整改革探析[J].现代城市规划研究,2007(9):4-9.LI Hao,SUN Xudong,CHEN Yanqiu.Analysis on Renovation about Index Adjustment of Regulatory Detailed Planning in the Transition Period[J].Modern Urban Research,2007(9):4-9.
[5]李建华.论我国地方政府与公共产品供给[D].长春:吉林大学,2004.LI Jianhua.Talk about Local Government and Public Product Supply in Our Country[D].Changchun:Jilin University,2004.
[6]晋璟瑶,林坚,杨春志,等.城市居住区公共服务设施有效供给机制研究——以北京市为例[J].城市发展研究,2007,14(6):95-100.JIN Jingyao,LIN Jian,YANG Chunzhi,et al.Study on the Effective Supply Mechanism of Public Facilities of the Residential Areas:A Case about Beijing[J].Urban Studies,2007,14(6):95-100.
[7]张小林.我国农村体育公共产品供给制度与创新[D].长沙:湖南农业大学,2010.ZHANG Xiaolin.System Analysis and Innovation of Rural Sports Public Goods Supply[D].Changsha:Hunan Agriculture University,2010.
[8]吴伟光,楼涛,郑旭理,等.自然保护区相关利益者分析及其冲突管理——以天目山自然保护区为例[J].林业经济问题,2005,25(5):274-286.WU Weiguang,LOU Tao,ZHENG Xuli,et al.Analyzing the Relevant Stakeholders of Nature Reverse Development and Its Conflicts Managing——Take Tianmo Nature Reverse as the Case[J].Problems of Forestry Economics,2005,25(5):274-286.
[9]杜琛琦.市政基础设施施工项目管理利益相关者研究[D].北京:北京大学,2009.DU Chenqi.On Stakeholders in Engineering Project Management of Municipal Infrastructure[D].Beijing:Peiking University,2009.
[10]许莉俊,徐里格.城市规划导向的经营性土地储备近期规划初探——以广州为例[J].规划师,2006(11):61-64.XU Lijun,XU Lige.A Preliminary Study on the Profit-making Landuse Immediate Reserve Plan Combined with the Urban Planning——Take Guangzhou For Example[J].Planner,2006(11):61-64.
[11]林坚,宋丽青,马晨越.旧城区轨道交通站点周边土地利用调控及动因——以北京市中心城储备用地的规划调整为例[J].城市规划,2011(8):14-19.LIN Jian,SONG Liqing,MA Chenyue.Land Use Control around Rail Transit Station in Old Urban District——Case Study of Reserved Land Plan Adjustment in Beijing’s Inner City[J].City Planning Review,2011(8):14-19.
[12]李江云.对北京中心区控规指标调整程序的一些思考[J].城市规划,2003(12):35-40.LI Jiangyun.Discoveries on the Index Adjusting Process of Regulatory Detailed Plan of Beijing Central District[J].City Planning Review,2003(12):35-40.
[13]刘晓钟.共赢的再造——控制性详细规划调整中文物建筑保护的契机[J].北京规划建设,2007(2):58-60.LIU Xiaozhong.Architectural Conservation in Detailed Planning[J].Beijing Planning Review,2007(2):58-60.
[14]晋璟瑶.北京市城市居住区公共服务设施有效供给机制研究[D].北京:北京大学,2007.JIN Jingyao.Effective Supply Mechanism of Public Facilities of the Urban Residential Areas in Beijing[D].Beijing:Peiking University,2007.
[15]付俊文,赵红.利益相关者理论综述[J].首都经济贸易大学学报,2006(2):16-21.FU Junwen,ZHAO Hong.Summary on Stakeholder Theory[J].Journal of Capital University of Economics and Business,2006(2):16-21.
①公共产品理论是公共财政学的重要组成部分,主要研究在符合公平和效率原则的前提下,公共事务的合理管理方式和资金供给方式。这一理论认为,现实的市场经济既非单纯的私人经济,也非单纯的公共经济,而是一种公共经济与私人经济的混合物。而政府公共产品的生产和提供,可以采取多种方式[14]。
②利益相关者理论最初运用于企业管理,认为企业应是利益相关者的企业,包括股东在内的所有利益相关者都对企业的生存和发展注人了一定的专用性投资,同时也分担了企业的一定经营风险,或是为企业的经营活动付出了代价,因而都应该拥有企业的所有权。利益相关者被认为是能够影响一个组织目标的实现,或者受到一个组织实现其目标过程影响的人[15]。
③2002年国土资源部11号令《招标拍卖挂牌出让国有土地使用权规定》中明确提出:“商业、旅游、娱乐和商品住宅等各类经营性用地,必须以招标、拍卖或者挂牌的方式出让。”由此可知,商业、旅游、娱乐和商品住宅等用地应属于经营性用地。