城市更新时代开发控制体系的内涵与特征辨析——羁束性与自由裁量的再平衡  

NATURE AND FEATURES OF THE DEVELOPMENT CONTROL SYSTEM IN THE ERA OF URBAN REGENERATION:RE-BALANCING REGULATORY CONTROL AND DISCRETIONARY CONTROL

作　　者：李吉桓 LI Jihuan

机构地区：[1]同济大学建筑与城市规划学院

出　　处：《城市规划》2025年第1期79-84,118,共7页City Planning Review

摘　　要：中国城市已从扩张式发展进入存量提升时代,对开发控制提出了新的要求。本文以上海为例,从土地产权视角出发,重新辨析我国现行土地制度下开发控制的内涵——哪些管理环节实际起到了土地用途管制作用,可以被视作开发控制体系的一部分。本文认为,我国现行的开发控制体系是“规划+合同”二者结合的,由公法和私法共同约束。进入存量更新时代以来,我国的开发控制体系呈现新的特征,羁束式管控要素和自由裁量式管控要素进行了再平衡,自由裁量式管控要素所占比重和其重要性逐渐提升。为推进城市高质量更新,本文建议开发控制平衡羁束式管理与自由裁量式管理,兼顾严肃性和灵活性。具体建议包括:减少控规中的刚性条款以提升弹性,同时保证刚性条款的严肃性;允许开发主体尽早介入规划管理过程;重视外部监督环节。Chinese cities have moved from a phase of expansionary development to an era of stock land regeneration,posing new demands on China’s development control system.Taking Shanghai as an example,this paper re-examines the nature of development control under China’s current urban land tenure system from the perspective of land property rights–which administrative actions effectively regulate land use and constitute the development control system.The paper argues that China’s current development control system is a combination of plans and contracts,jointly regulated by both public and private laws.Since China has entered the era of urban regeneration,its development control system has shown new characteristics,with a re-balancing of regulatory control and discretionary control within the development control system,and with discretionary control elements gradually increasing in both proportion and importance.To promote high-quality urban regeneration,it suggests that development control should strike a balance between regulatory control and discretionary control,taking into account both credibility and flexibility.Specific suggestions include reducing prescriptive provisions in regulatory detailed plans to increase flexibility and enhance the credibility of the remaining prescriptive provisions,allowing developers to engage in planning modifications at earlier stages,and enhancing external supervision.

关 键 词：开发控制 土地产权 控制性详细规划 土地出让合同 自由裁量权 上海 

分 类 号：TU984[建筑科学—城市规划与设计]