容积率奖励与转移的规划制度与交易机制探析——基于均等发展区域与空间地价等值交换
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摘要
城市更新与存量用地再利用过程中,常常面临着更新空间与更新开发成本收益难以平衡的障碍,亟需创新构建容积率奖励与转移机制。在梳理我国各城市容积率奖励与转移政策及实践特点基础上,剖析容积率奖励与转移存在的政策障碍和实践问题,运用土地经济学理论,提出了设定可转移容积率指标、基于均等发展理念设定均等发展区域和可转移容积率弹性空间、容积率移入移出区设定规则以及容积率奖励与转移适合条目等规划基础及制度创新思路;提出了以空间地价等值交换为基础,构建跨行政区政府间与行政区内政府机构间交易的二层级市场结构体系,建立容积率奖励与转移的经济基础与交易机制;为推进容积率奖励与转移的规划制度、土地制度、交易制度等制度改革提供了依据。
Urban renewal is often confronted with difficulties of balancing cost and benefit of redevelopment. Therefore, there is an urgent need to innovate and build a Floor-Area Ratio(FAR) reward and transfer mechanism. Based on a review of policies and practices of FAR reward and transfer in Chinese cities, this paper analyzes policy barriers and practical problems facing FAR reward and transfer. Using the theory of land economics, this paper proposes planning and institutional innovations such as setting transferable FAR, setting equal development opportunity areas and a flexible range of transferable FAR, regulating sending and receiving zones for FAR transfer and so on. The paper puts forward the economic basis and trading mechanism for FAR reward and transfer and constructs a twotier market system based on equal exchange of land value, which can support FAR trading across and within jurisdictions. The paper provides a basis for the reform of the planning system, the land system, the trading system and other systems to support FAR reward and transfer.
Urban renewal is often confronted with difficulties of balancing cost and benefit of redevelopment. Therefore, there is an urgent need to innovate and build a Floor-Area Ratio(FAR) reward and transfer mechanism. Based on a review of policies and practices of FAR reward and transfer in Chinese cities, this paper analyzes policy barriers and practical problems facing FAR reward and transfer. Using the theory of land economics, this paper proposes planning and institutional innovations such as setting transferable FAR, setting equal development opportunity areas and a flexible range of transferable FAR, regulating sending and receiving zones for FAR transfer and so on. The paper puts forward the economic basis and trading mechanism for FAR reward and transfer and constructs a twotier market system based on equal exchange of land value, which can support FAR trading across and within jurisdictions. The paper provides a basis for the reform of the planning system, the land system, the trading system and other systems to support FAR reward and transfer.
引文
[1]戴锏.美国容积率调控技术的体系化演变及应用研究[D].哈尔滨工业大学博士学位论文,2010.(DAI Jian.Research on systematic development and application of FAR regulation techniques of American[D].The Dissertation for Doctor Degree of Harbin Institute of Technology,2010.)
[2]高源.美国城市设计运作激励及对中国的启示[J].城市发展研究,2005,12(3):59-64.(GAO Yuan.Inspiration of American urban design operation and its enlightenment to China[J].Urban Studies,2005,12(3):59-64.)
[3]顾昆鹏.土地发展权及容积率转移的城市土地开发机制研究[D].重庆大学硕士学位论文,2011.(GU Kunpeng.Study on the urban land development mechanism of land development right and floor area ratio transfer[D].The Dissertation for Master Degree of Chongqing University,2011.)
[4]洪霞,刘奕博,梁粱.我国与美国容积率奖励制度的比较研究[C].2013中国城市规划年会,2013.(HONG Xia,LIU Yibo,LIANG Liang.A comparative study of FAR rewards between China and the United States[C]//Chinese Urban Planning Annual Conference,2013.)
[5]黄大田.利用非强制型城市设计引导手法改善城市环境:浅析美、日两国的经验,兼论我国借鉴的可行性[J].城市规划,1999(6):40-41.(HUANG Datian.Using the nonforced urban design and guidance to improve theurban environment:an analysis of the experience of America and Japan and the feasibility of China's reference[J].City Planning Review,1999(6):40-41.)
[6]金广君,戴锏.台湾地区容积率转移制度解析[J].国际城市规划,2010,25(4):104-109.(JIN Guangjun,DAI Jian.Analysis on the FAR transfer system in Taiwan[J].Urban Planning International,2010,25(4):104-109.)
[7]黎明月,吴璟,郑思齐.容积率奖励在我国保障性住房建设中的应用与创新[J].现代城市研究,2014(11):12-16.(LI Mingyue,WU Jing,ZHENG Siqi.The application and innovation of the FAR reward in the construction of safeguard housing in China[J]?Modern Urban Research,2014(11):12-16.)
[8]李金和.基于容积率奖励的城市公共空间规划控制与引导策略研究[C]//中国城市规划学会,沈阳市人民政府.规划60年:成就与挑战——2016中国城市规划年会论文集(12规划实施与管理).中国城市规划学会、沈阳市人民政府,2016:13.(LI Jinhe.Study on the control and guidance strategy of urban public space planning based on the FAR reward[C]//China City Planning Institute,Shenyang Municipal People's government.Based on the planning of 60 years:achievements and challenges:2016 China city planning annual meeting proceedings(12 planning implementation and management).China City Planning Institute,Shenyang Municipal People's Government,2016:13.)
[9]刘怀宇.容积率转移城市更新新路径?[N].南方日报,2016-06-03(AA2).(LIU Huaiyu.Is FAR transference a new route for urban renewal[N].?Nanfang Daily,2016-06-03.)
[10]刘琎.基于开发权转移制度的广东省中小城市传统街区保护更新实施研究[D].华南理工大学硕士学位论文,2013.(LIU Jin.Research on the implementation of the protection and renewal of the traditional blocks in the small and medium-sized cities in Guangdong province based on the transfer of development rights[D].The Dissertation for Master Degree of South China university of technology,2013.)
[11]刘晶晶,石峰,叶冬黎,等.产业园区存量型城市设计——以江宁高新园区二次开发为例[J].规划师,2016,32(9):103-107.(LIU Jingjing,SHI Feng,YE Dongli,et al.Stock land urban design of industrial parks:secondary development of Jiangning high-tech park[J].Planners,2016,32(9):103-107.)
[12]刘敏霞.历史风貌保护开发权转移制度的实施困境及对策——以上海为例[J].上海城市规划,2016(5):50-53.(LIU Minxia.The difficulties and countermeasures of the implementation of the transfer system of the development of historical style——take Shanghai for example[J].Shanghai Urban Planning Review,2016(5):50-53.)
[13]刘羿,强甜甜.比较法视野下土地指标交易改革研究[J].北方民族大学学报,2016(2):115-120.(LIU Yi,QIANG Tiantian.A study on the reform of land indicator transaction in the perspective of comparative method[J].Journal of the Beifang University Of Nationalities,2016(2):115-120.)
[14]覃俊翰.借鉴台湾经验的历史街区保护视角下的容积移转制度研究[D].华南理工大学硕士学位论文,2012.(QIN Junhan.A study on the FAR transfer system from the perspective of Taiwan's experience of historic district protection[D].The Dissertation for Master Degree of South China University of Technology,2012.)
[15]覃俊翰.历史街区保护视角下的容积转移制度研究[J].规划师,2013,29(s1):34-37.(TAN Junhan.Research on FAR transfer system from the perspective of historical street protection[J].Planners,2013,29(s1):34-37.)
[16]沈子龙.土地发展权中国化的路径选择[D].浙江大学硕士学位论文,2009.(SHEN Zilong.The path selection of the sinicization of land development rights[D].The Dissertation for Master Degree ofZhejiang University,2009.)
[17]唐安静.浅谈容积率转移政策在历史街区保护更新中的应用——以上海嘉定老城西门街区为例[C].2012中国城市规划年会,2012.(TANG Anjing.Discussion the implement of FAR transference in historical block protection and updating:use Shanghai Jiading west street district as an example[C].Chinese Urban Planning Annual Conference,2012.)
[18]吴静雯,严杰.容积率奖励的可行性研究[C]//2008中国城市规划年会论文集,2008.(WU Jingwen,YAN Jie.Feasibility study of FAR rewards[C]//Urban and rural planning from the perspective of ecological civilization:2008 proceedings of the Chinese Urban Planning Conference,2008.)
[19]于洋.纽约市区划条例的百年流变(1916—2016)——以私有公共空间建设为例[J].国际城市规划,2016,31(2):98-109.(YU Yang.The centenary of the zoning ordinance in New York City(1916—2016)——using private public space construction as an example[J].Urban Planning International,2016,31(2):98-109.)
[20]运迎霞,吴静雯.容积率奖励及开发权转让的国际比较[J].天津大学学报(社会科学版),2007(3):181-185.(YUN Yingxia,WU Jingwen.The international comparison of FAR reward and transfer of development rights[J].Journal of Tianjin University(Social Sciences),2007(3):181-185.)
[21]张国俊,汤黎明.开发权转移及容积率奖励在我国的适用性探讨[J].价值工程,2011,30(14):80-82.(ZHANG Guojun,TANG Liming.Discussion on the applicability of development right transfer and FAR reward in China[J].Value Engineering,2011,30(14):80-82.)
[22]张姣.控制性详细规划编制中容积率奖励机制研究[D].北京工业大学硕士学位论文,2009.(ZHANG Jiao.Research on incentive mechanism of volume ratio in controlled detailed planning[D].The Dissertation for Master Degree ofBeijing University ofTechnology,2009.)
[23]邹兵.悉尼市历史建筑保护的奖励制度及启示[J].规划师,2001,17(1):42-45.(ZHOU Bing.Reward system and inspiration of historic building protection in Sydney city[J].Planners,2001,17(1):42-45.)
[2]高源.美国城市设计运作激励及对中国的启示[J].城市发展研究,2005,12(3):59-64.(GAO Yuan.Inspiration of American urban design operation and its enlightenment to China[J].Urban Studies,2005,12(3):59-64.)
[3]顾昆鹏.土地发展权及容积率转移的城市土地开发机制研究[D].重庆大学硕士学位论文,2011.(GU Kunpeng.Study on the urban land development mechanism of land development right and floor area ratio transfer[D].The Dissertation for Master Degree of Chongqing University,2011.)
[4]洪霞,刘奕博,梁粱.我国与美国容积率奖励制度的比较研究[C].2013中国城市规划年会,2013.(HONG Xia,LIU Yibo,LIANG Liang.A comparative study of FAR rewards between China and the United States[C]//Chinese Urban Planning Annual Conference,2013.)
[5]黄大田.利用非强制型城市设计引导手法改善城市环境:浅析美、日两国的经验,兼论我国借鉴的可行性[J].城市规划,1999(6):40-41.(HUANG Datian.Using the nonforced urban design and guidance to improve theurban environment:an analysis of the experience of America and Japan and the feasibility of China's reference[J].City Planning Review,1999(6):40-41.)
[6]金广君,戴锏.台湾地区容积率转移制度解析[J].国际城市规划,2010,25(4):104-109.(JIN Guangjun,DAI Jian.Analysis on the FAR transfer system in Taiwan[J].Urban Planning International,2010,25(4):104-109.)
[7]黎明月,吴璟,郑思齐.容积率奖励在我国保障性住房建设中的应用与创新[J].现代城市研究,2014(11):12-16.(LI Mingyue,WU Jing,ZHENG Siqi.The application and innovation of the FAR reward in the construction of safeguard housing in China[J]?Modern Urban Research,2014(11):12-16.)
[8]李金和.基于容积率奖励的城市公共空间规划控制与引导策略研究[C]//中国城市规划学会,沈阳市人民政府.规划60年:成就与挑战——2016中国城市规划年会论文集(12规划实施与管理).中国城市规划学会、沈阳市人民政府,2016:13.(LI Jinhe.Study on the control and guidance strategy of urban public space planning based on the FAR reward[C]//China City Planning Institute,Shenyang Municipal People's government.Based on the planning of 60 years:achievements and challenges:2016 China city planning annual meeting proceedings(12 planning implementation and management).China City Planning Institute,Shenyang Municipal People's Government,2016:13.)
[9]刘怀宇.容积率转移城市更新新路径?[N].南方日报,2016-06-03(AA2).(LIU Huaiyu.Is FAR transference a new route for urban renewal[N].?Nanfang Daily,2016-06-03.)
[10]刘琎.基于开发权转移制度的广东省中小城市传统街区保护更新实施研究[D].华南理工大学硕士学位论文,2013.(LIU Jin.Research on the implementation of the protection and renewal of the traditional blocks in the small and medium-sized cities in Guangdong province based on the transfer of development rights[D].The Dissertation for Master Degree of South China university of technology,2013.)
[11]刘晶晶,石峰,叶冬黎,等.产业园区存量型城市设计——以江宁高新园区二次开发为例[J].规划师,2016,32(9):103-107.(LIU Jingjing,SHI Feng,YE Dongli,et al.Stock land urban design of industrial parks:secondary development of Jiangning high-tech park[J].Planners,2016,32(9):103-107.)
[12]刘敏霞.历史风貌保护开发权转移制度的实施困境及对策——以上海为例[J].上海城市规划,2016(5):50-53.(LIU Minxia.The difficulties and countermeasures of the implementation of the transfer system of the development of historical style——take Shanghai for example[J].Shanghai Urban Planning Review,2016(5):50-53.)
[13]刘羿,强甜甜.比较法视野下土地指标交易改革研究[J].北方民族大学学报,2016(2):115-120.(LIU Yi,QIANG Tiantian.A study on the reform of land indicator transaction in the perspective of comparative method[J].Journal of the Beifang University Of Nationalities,2016(2):115-120.)
[14]覃俊翰.借鉴台湾经验的历史街区保护视角下的容积移转制度研究[D].华南理工大学硕士学位论文,2012.(QIN Junhan.A study on the FAR transfer system from the perspective of Taiwan's experience of historic district protection[D].The Dissertation for Master Degree of South China University of Technology,2012.)
[15]覃俊翰.历史街区保护视角下的容积转移制度研究[J].规划师,2013,29(s1):34-37.(TAN Junhan.Research on FAR transfer system from the perspective of historical street protection[J].Planners,2013,29(s1):34-37.)
[16]沈子龙.土地发展权中国化的路径选择[D].浙江大学硕士学位论文,2009.(SHEN Zilong.The path selection of the sinicization of land development rights[D].The Dissertation for Master Degree ofZhejiang University,2009.)
[17]唐安静.浅谈容积率转移政策在历史街区保护更新中的应用——以上海嘉定老城西门街区为例[C].2012中国城市规划年会,2012.(TANG Anjing.Discussion the implement of FAR transference in historical block protection and updating:use Shanghai Jiading west street district as an example[C].Chinese Urban Planning Annual Conference,2012.)
[18]吴静雯,严杰.容积率奖励的可行性研究[C]//2008中国城市规划年会论文集,2008.(WU Jingwen,YAN Jie.Feasibility study of FAR rewards[C]//Urban and rural planning from the perspective of ecological civilization:2008 proceedings of the Chinese Urban Planning Conference,2008.)
[19]于洋.纽约市区划条例的百年流变(1916—2016)——以私有公共空间建设为例[J].国际城市规划,2016,31(2):98-109.(YU Yang.The centenary of the zoning ordinance in New York City(1916—2016)——using private public space construction as an example[J].Urban Planning International,2016,31(2):98-109.)
[20]运迎霞,吴静雯.容积率奖励及开发权转让的国际比较[J].天津大学学报(社会科学版),2007(3):181-185.(YUN Yingxia,WU Jingwen.The international comparison of FAR reward and transfer of development rights[J].Journal of Tianjin University(Social Sciences),2007(3):181-185.)
[21]张国俊,汤黎明.开发权转移及容积率奖励在我国的适用性探讨[J].价值工程,2011,30(14):80-82.(ZHANG Guojun,TANG Liming.Discussion on the applicability of development right transfer and FAR reward in China[J].Value Engineering,2011,30(14):80-82.)
[22]张姣.控制性详细规划编制中容积率奖励机制研究[D].北京工业大学硕士学位论文,2009.(ZHANG Jiao.Research on incentive mechanism of volume ratio in controlled detailed planning[D].The Dissertation for Master Degree ofBeijing University ofTechnology,2009.)
[23]邹兵.悉尼市历史建筑保护的奖励制度及启示[J].规划师,2001,17(1):42-45.(ZHOU Bing.Reward system and inspiration of historic building protection in Sydney city[J].Planners,2001,17(1):42-45.)