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地理科学    2016, Vol. 36 Issue (2): 222-230     DOI: 10.13249/j.cnki.sgs.2016.02.008
  研究论文 本期目录 | 过刊浏览 | 高级检索 |
跨市轨道交通溢价回收策略与多层级管治:以珠三角为例
林雄斌1,2(),杨家文1(),李贵才1,刘龙胜3,栾晓帆1,2,陈文4
1. 北京大学城市规划与设计学院,广东 深圳518055
2. 北京大学城市与环境学院,北京100871
3. 深圳市城市规划设计研究院,广东 深圳518031
4. 长沙市轨道交通集团有限公司,湖南 长沙 410007
Land Value Capture and Multi-level Governance for Inter-city Passenger Rail Transit in the Zhujiang River Delta
Xiongbin Lin1,2(),Jiawen Yang1(),Guicai Li1,Longsheng Liu3,Xiaofan Luan1,2,Wen Chen4
1.School of Urban Planning and Design, Peking University, Shenzhen 518055,Guangdong, China
2. College of Urban and Environmental Sciences, Peking University, Beijing 100871, China
3.Urban Planning & Design Institute of Shenzhen, Shenzhen 518031,Guangdong,China
4. Changsha Metro Group Co., Ltd., Changsha 410007, Hunan, China
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摘要 

随着城市化和机动化的发展,跨市轨道交通建设成为应对交通拥堵,引导土地开发与通勤结构,促进区域一体化的策略。面对轨道交通巨额建设运营成本,多层级政府管治(Multi-level Governance)下的投融资模式和溢价回收(Value Capture)策略成为推动跨市轨道交通建设的基础。目前,对跨市交通设施的溢价回收和多层级管治还缺乏系统讨论。以珠三角为例,实证分析跨市轨道交通多层级政府的合作博弈、投融资模式与溢价回收策略,重点论述由“省部合作”向“省市合作”联合开发的溢价回收策略转变。研究发现,珠三角跨市轨道交通联合开发面临土地、规划和财税等制度约束以及政府间利益博弈,省政府主导的“省市合作”交通土地综合开发模式超越单个城市政府,实现区域层面的交通溢价回收,能为中国城际轨道交通融资和多层级管治提供参考。

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林雄斌
杨家文
李贵才
刘龙胜
栾晓帆
陈文
关键词 跨市交通溢价回收多层级管治城际轨道交通珠三角 
Abstract

Under the context of rapid urbanization and motorization in urban China, the demand for multi-jurisdictional passenger transport is becoming increasingly significant for regional integrated development. Following this trend, inter-city passenger rail transit has been viewed by the local governments as an important alternative to driving, particularly when issues of road congestion, land development and regional integration are considered. However, how to obtain the capital to cover huge constructive and operational costs is challenging inter-city passenger rail transit. Current literature has focused on funding for municipal passenger rail transit and the issue of value capture policies and distribution arrangement. The value capture setup for inter-city rail transit has rarely been discussed. In this research, we first review some perceived difficulties and strategies for value capture in China, and then we present a case study of Inter-city Passenger Rail Transit in the Zhujiang River Delta. The case study describes the relevant planning and development processes. In particular, it explains how the funding for this project has evolved from a collaborative effort between Guangdong Provincial Government and The Ministry of Railways to that between the Provincial Government and the relevant municipal governments. The ending arrangement is a new value-capture mechanism for funding the inter-city passenger rail. The innovation of this funding mechanism and the concurrent implementation difficulties are valuable experience for other mega-regions where similar inter-city transport projects have been considered.

Key wordsmulti-jurisdictional passenger transport    value capture    multi-level governance    inter-city passenger rail transit    the Zhujiang River Delta
收稿日期: 2015-02-03      出版日期: 2016-06-06
基金资助:国家自然科学基金(41371168;41501121)、深圳市海外高层次人才计划(KQCX20130628093909157)资助
作者简介: 林雄斌(1988-),男,江西玉山人,博士研究生,研究方向为城市与区域交通.E-mail:linxiongbin@sz.pku.edu.cn
引用本文:   
林雄斌, 杨家文, 李贵才等 . 跨市轨道交通溢价回收策略与多层级管治:以珠三角为例[J]. 地理科学, 2016, 36(2): 222-230.
Xiongbin Lin, Jiawen Yang, Guicai Li et al . Land Value Capture and Multi-level Governance for Inter-city Passenger Rail Transit in the Zhujiang River Delta[J]. SCIENTIA GEOGRAPHICA SINICA, 2016, 36(2): 222-230.
链接本文:  
http://geoscien.neigae.ac.cn/CN/10.13249/j.cnki.sgs.2016.02.008      或      http://geoscien.neigae.ac.cn/CN/Y2016/V36/I2/222
Fig.1  珠三角城际轨道交通站点与线路(注:根据《珠江三角洲地区城际轨道交通网规划(2009年修订)》、《珠江三角洲基础设施建设一体化规划(2009~2020年)》绘制)
Fig.2  珠三角城际轨道交通“省市合作”溢价回收开发模式
城市政府主导建设 省部合作开发 省市合作开发
典型线路 城市轨道交通线路 广珠线 广清线
线路规划 各城市轨道交通线路规划 珠三角城际轨道交通规划 珠三角城际轨道交通规划
融资主体 城市政府为主 广东珠三角城际轨道交通有限责任公司(铁道部占50%,省政府占50%) 投资145.9亿元,清远市负责征地拆迁,广州市和省政府负责其他成本
土地储备
与开发
一般来说,城市政府储备若干站点(枢纽站、中心区)周边的土地 沿线地方政府负责土地储备和土地开发 红线内土地:省政府控制取得。红线外及TOD规划土地:省市联合开发或城市政府单一取得
土地与交通
运营
土地开发和交通运营相分离,溢价效应通过土地出让回收至城市财政,但未与交通运营捆绑。 省政府负责轨道交通运营,沿线土地由相应地方政府负责,土地开发收益不能回馈交通运营。 红线内土地:实现“交通+土地”捆绑式开发,红线外土地:若单独开发,城市政府负责运营补亏,若合作开发由省市共同负责。
Table 1  省市联合开发各环节的创新与对比
Fig.3  省市合作联合开发创新制度框架
Fig.4  珠三角城际轨道交通省部合作建设的管治与动态博弈
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