尺度重构视角下的土地再开发增值空间分配——以广州海珠湾枢纽地区为例

在存量土地再开发过程中，产生的新增价值（增值空间）分配的合理性，成为影响土地再开发运行效率的关键。从尺度重构视角，构建土地再开发增值空间分配研究框架，以广州海珠湾枢纽地区为例，对自主改造、土地征收和土地整备3种再开发模式，进行尺度跃迁观察，并剖析相应的增值空间分配成效及再开发项目推进情况。研究表明，柔性跃迁的自主改造与刚性跃迁的土地征收，均是基于经济平衡进行的增值空间分配，容易挤压为社会共享的单元增值空间，导致再开发工作难以推进。而中间跃迁的土地整备，通过权力与空间的适配调整，以“储改结合”促进多方合作改造，以“单元”社会平衡为原则，促进增值空间分配的“显性化”，保障为社会共享的单元增值空间。基于此，提出土地再开发增值空间分配合理化的路径，包括：构建上级政府权威的土地整备统筹机制，构建成片连片的土地整备单元载体，构建社会平衡的显性化分配机制。

Land Value Increment Allocation in Land Redevelopment from the Perspective of Rescaling:A Case Study of the Haizhu Bay Hub Area in Guangzhou

The key factor that influences the progress and operational efficiency of a reserved land redevelopment program is the rationality of land value increment allocation. Scaling-up has become a type of spatial governance instrument. During land redevelopment, there are three types of scaling-up statuses: self-transformation as flexible scaling-up, land acquisition as rigid scaling-up, and land consolidation as medium scaling-up. This paper establishes a framework for research on land value increment allocation in land redevelopment from the perspective of rescaling, taking Guangzhou Haizhu Bay Transport Hub and its surroundings as a case study. Three redevelopment pattern types (self-transformation, land acquisition, and land consolidation) were observed based on the scope of scaling-up, the effectiveness of land value increment allocation, and progress of redevelopment programs under different scaling-up models. On a plot with single ownership, flexible scaling-up can be regarded as a financially oriented self-transformation. The non-transparent mechanism of land value increment allocation is likely to squeeze society-shared benefits derived from land appreciation of a "unit", which tends to make it difficult to promote self-transformation programs. Rigid scaling-up can be considered as land acquisition under government control. It focuses on land as a "unit" and financial balance, compiling land acquisition and banking proposals. The powers of multiple stakeholders are not equal during the processes of land acquisition. The non-transparent allocation mechanism of land value increments, led by the local government, is likely to induce new conflict from original landowners, leading to impediments of such programs. In medium scaling-up, land consolidation is based on interactions among the multiple stakeholders. It satisfies practical demands of land redevelopment programs by coordinating interrelationships between power and space. The "banking-transforming" land consolidation approach promotes cooperation on land redevelopment among the multiple stakeholders, and synergistic value-added effects can be attained. The establishment of transparent mechanisms aims to improve fairness and rationality in land value increment allocation, achieving balance between societal and financial benefits in a "unit", and guaranteeing its land supply. This paper proposes three rational paths for land value increment allocation in land redevelopment. From the point of power, it establishes a coordinated mechanism of land consolidation based on authoritativeness of upper governments. From the point of space, it constructs a carrier for a land consolidation "unit". On the aspect of land value increment allocation, it builds up a transparent mechanism with societal-financial benefit balance. In further study on land redevelopment, more attention should be paid to utilizing scaling-up instruments rationally, to transforming space reconstruction patterns, and to innovating transparent allocation mechanisms for land value increments. This application of rescaling theory provides a reference to practical programs for improving the efficiency of land redevelopment, and for promoting area integral high-quality development.