“土地租金剩余”视角下旧厂房改造为创新空间的路径研究——基于广州、深圳对比分析

创新活动正向特大城市集中，按地租理论，市区旧厂房用地将形成土地租金剩余。城市政府通过调整城市更新政策，在不同主体间分配旧厂房改造带来的土地租金剩余并向市场供应创新空间。文章以广州、深圳为例，讨论城市政府在财政和土地资源约束下，选择相应旧厂房改造政策管控工具和土地租金剩余的分配方式，形成不同的创新空间供给路径，从而塑造了不同的城市景观。深圳由于土地财政依赖程度较低，但新增土地资源严重困乏，在旧厂房的功能转换、开发强度、产权等方面的管控相对较为宽松，大力推进全面改造的“工改工”项目，向市场让渡较多土地租金剩余并供给大量中高成本、高品质的创新空间。广州则在债务及财政压力下，选择通过国有土地旧厂房“工改居”和“工改商”获取较多土地剩余，而市内的村级工业园则在政府严格管控下通过“非正式”更新的方式自行获取租金剩余，并提供大量中低成本及品质的创新空间。对此，建议广州应进一步加强对国有旧厂房及村级工业园等存量工业用地的梳理摸查，结合空间规划与城市功能布局，分类整治，分区引导一批集体旧厂房完善用地、规划、建设、环保等手续，实现“正式”、全面、彻底的功能转换升级，为创新型产业发展提供优质空间支撑；而深圳则应通过进一步的精细化管控，防止“工改工”项目的房地产化，保障创新型产业空间的供给。

Supplying Space for Innovation from the Old Factory from the Perspective of Land Rent Residual: Comparison between Guangzhou and Shenzhen

According to the land rent theory, innovative activities return to a megacity's downtown based on the formation of land rent residual in the area occupied by factories. The city government regularly modifies the regeneration policy to balance the distribution of land rent residual between different principals and supply space for innovation. City governments have different opinions on the distribution of land rent residuals. Therefore, methods of supplying space for innovation and shaping diverse urban landscapes also differ. Since the city government of Shenzhen relies less on land finance than other megacities in China, and it lacks land resources, they regenerate industrial land into innovative space. With less constraint on function transformation, development density, and property rights, the city government gives out much of the land rent residual and supplies several high quality spaces for innovation at a medium-cost. The city government of Guangzhou chooses to acquire massive land rent residuals by regenerating state-owned factories and business areas under financial pressure and debts into residency. However, the land rent residual of village-owned factories can only be extracted from informal regeneration under the strict constraints posed and acquired by the city government, while supplying medium to lost cost innovation spaces of medium and low qualities. Consequently, it is suggested that the Guangzhou government should thoroughly research on existing industrial land where old state-owned factories and village industrial parks are located. Spatial planning and reformation of the city and resolving problems in old village-owned factories for a complete and legal upgradation will provide a decent space for the innovation industry. To ensure enough land and space for the innovation industry, the Shenzhen government needs to employ precaution against over-exploitation of industrial regeneration policy when real estate gets involved.