利益冲突与政策困境--北京城乡结合部规划实施中的问题与政策建议  

Interest Confl icts and Policy Dilemma: Problems and Suggestions of Planning Implementation of Beijing's Rural-Urban Fringe

作　　者：徐勤政[1] 石晓冬[1] 胡波[2] 曹娜[3] 高雅[1] 

机构地区：[1]北京市城市规划设计研究院研究室 [2]北京市规划委员会总体处 [3]北京市城市规划设计研究院详规所

出　　处：《国际城市规划》2014年第4期52-59,共8页Urban Planning International

摘　　要：伴随着绿隔政策的实施,北京城乡结合部的治理已近30年,在绿化和城市化取得巨大成绩的同时,依旧存在人、地、钱、绿、农等五方面的问题,其中最核心的是实施成本。在"规划调地,以地生财,以地养绿"的循环体系中,公共财政体制残缺导致规划一方面成为绿隔实施的前置手段,另一方面成为政策困境的顶罪羔羊。有时即使规划做出最大限度的妥协,一些村庄改造和绿化工程还是因资金链断裂而中止。本文在分析问题根源的基础上,主要探讨两个层次的问题:一是通过梳理北京城乡结合部地区破碎的利益关系,分析利益冲突造成的空间问题和政策困境;二是通过国际比较,从规划实施评估的角度,寻求规划"解套"的制度设计和技术路径。研究认为,单靠空间置换、瓦片升级解决不了农民上楼问题,单靠调增指标解决不了经济平衡和长远发展问题,单靠编制规划解决不了城乡结合部庞杂的社会问题。釜底抽薪的解决方法是"政策引领规划、三农指挥规划、算账框定规划"。Accompanying the implementation of green belt policies, Beijing has been putting its efforts in governing the rural-urban fringe area for almost 30 years. While both green space expansion and urbanization have made enormous achievements, there are still problems and issues that lie in five aspects： population, land, capital, green space and farmers. The very core issue here is the problem of implementation cost. In the cycle of ＂planning adjustment, profit generation from land and feed the green space with land＂, the lack of public finance regime has caused planning becoming the pre-solution. On the other hand, planning has also become the excuse for policy dilemmas. Sometimes village renovation and green space implementation projects are stopped because of capital shortage even planning has made the biggest compromise. On the basis of problem analysis, this article examines two levels of issues. One is through the analysis of fragmented interest groups in Beijing rural-urban fringe to reach the resulting spatial problems and policy dilemmas; secondly, to search for policy design and technical patterns from the perspective of planning implementation evaluation by international comparison. This study holds the opinion that. merely by spatial redistribution and upgrading property type cannot solve the problem of farmers＇ relocation to urban concrete. Merely by adjusting the land quota cannot solve the problem of cconomic balance and long-term development. Merely by making plans cannot solve the complicated problems in rural-urban fringe area. The drastic measure to solve all these problems is ＂using policies to guide the planning, use the concept of ＇agriculture industry, villages and farmers＇ to mardate planning, use the clear estimated possible cost to frame planning.＂

关 键 词：城乡结合部 规划实施 利益冲突 政策困境 北京 

分 类 号：TU984[建筑科学—城市规划与设计]