华东师范大学学报(哲学社会科学版) ›› 2020, Vol. 52 ›› Issue (2): 161-170.doi: 10.16382/j.cnki.1000-5579.2020.02.015

• 城镇化与城市发展 • 上一篇    下一篇

大城市存量工业用地再开发的问题及其对策:以上海为例

张传勇1, 王丰龙2, 杜玉虎3   

  1. 1. 上海交通大学中国城市治理研究院、国际与公共事务学院,上海,200030;2. 华东师范大学中国现代城市研究中心、城市发展研究院,上海,200062;3. 上海市开发区协会,上海,200233
  • 发布日期:2020-03-24
  • 通讯作者: 王丰龙(通讯作者),华东师范大学中国现代城市研究中心、城市发展研究院副教授(上海,200062)
  • 作者简介:张传勇,上海交通大学中国城市治理研究院、国际与公共事务学院副教授(上海,200030);杜玉虎,上海市开发区协会秘书长(上海,200233)。
  • 基金资助:
    国家自然科学基金面上项目"区域房价分化与家庭资产配置:机制、识别及政策含义"(项目编号:71774057);上海市教委智库内涵建设项目"推进存量工业用地再开发,提高上海经济密度";中央党校基本科研业务费项目华东师范大学共享交叉基金(人文社科科目;项目编号:2019ECNU-GXJC002);城市群系统演化与可持续发展的决策模拟研究北京市重点实验室2019年度开放基金(项目编号:MCR2019QN01)。

On the Problems and Countermeasures of Stock Industrial Land Redevelopment in China's Large Cities: A Case Study of Shanghai

ZHANG Chuan-yong1, WANG Feng-long2, DU Yu-hu3   

  • Published:2020-03-24

摘要: 随着城市化进程的推进和产业的转型升级,上海等大城市面临着城市人口持续增长和土地资源紧缺的矛盾,必须加快探索与社会经济发展相适应的土地利用方式,有效盘活存量工业用地,提高工业用地效率,为城市高质量发展提供足够的空间。以上海市为例的研究表明,近30年来,上海市工业用地二次开发经历了以中心城区国有工业用地更新为主、以产业结构调整和园区转型升级为主导、以盘活存量和二次开发为主等3个阶段,且目前针对城中心废旧工业用地、工业园区低效用地、郊区乡镇零散工业用地的二次开发采取了不同模式,但总体上仍存在诸如二次开发对象"乱"、土地收储成本"高"、配套服务功能"弱"等问题。其原因主要在于,统一的二次开发机构欠缺,相关政策法律不健全,利益分享机制不清,产业等配套服务脱节。有鉴于此,上海市工业用地二次开发应当在遵循相关基本原则的前提下,采取制定综合规划、实行各类试点,构建多主体合作框架、兼顾各方利益,完善土地出让制度、破除开发瓶颈,提高激励、纳入员工考核机制等对策措施。

关键词: 大城市, 工业园区, 存量工业用地, 土地二次开发, 上海市

Abstract: With the deepening of urbanization and transformation and upgrading of industries, China's large cities such as Shanghai are facing the dual pressure of sustained and rapid growth of urban population and shrinking land resources. It is necessary to expedite the exploration of land-use methods that are compatible with society and economy, increase the efficiency of industrial land use, and provide sufficient space for high-quality urban development in China's large cities. Taking Shanghai as an example, this paper shows that the secondary development of industrial land in Shanghai has undergone three stages in the past 30 years, with the emphasis shifting from the renewal of state-owned industrial land in the central urban area, industrial structure adjustment and land-use upgrading in industrial parks, to the revitalization of stock land and secondary development. Currently, different models have been adopted for the secondary development of waste industrial land in urban centers, inefficient land in industrial parks, and scattered industrial land in suburban towns and villages. The secondary development of industrial land in Shanghai still has some problems, such as "chaotic" objects of secondary development, "high" land acquisition and storage costs and "weak" supporting service functions. The main reasons are the lack of a unified secondary development institution, imperfect relevant policies and laws, unclear benefit-sharing mechanism, and the disruption of supporting services. In this connection, the secondary development of stock industrial land in Shanghai should (1) adopt comprehensive planning and implement various trials on the premise of following some basic principles; (2) construct a multi-subject cooperation framework that takes into account the interests of all parties; (3) improve the land transfer system and eliminate development bottlenecks; and (4) improve incentives and incorporate countermeasures such as employee assessment mechanisms.

Key words: large city, industrial park, stock industrial land, secondary development of land, Shanghai