| 摘要: |
| 高铁选址是高铁建设规划中颇具
争议的环节。本文提出一个解释我国高铁站
点选址的多主体概念分析框架，指出乘客、
铁路公司、中央政府和地方政府对于站点设
置的需求存在差异与冲突，这四股需求力量
的相对重要性塑造了站点选址结果。结合我
国典型高铁站点选址案例，基于该框架，剖
析高铁站点选址的背后的动因与逻辑。除受
制于技术和环境因素，选址还受到政治经济
因素影响: 注重客流需求的特大城市，通过自
身的政治经济实力可以将站点设置于城市中
心；轨道公司从降低成本、保证速度的原则
出发，选址优先考虑重点城市，这造成其余
城市选址更为被动；以均衡发展为目标，中
央政府赋予沿线地方政府设站的权利，同时
也带来盲目设站和重复建设等问题；地方政府更注重高铁经济带来的土地红利，倾向于选择具有可开发用地的选址，但在土地与交通利用
规划协同程度不足的情况下，难以到达预期的站城融合开发效果。随着铁路建设投融资机制
的进一步改革，各个主体间的关系正处于变化之中。探究高铁站点选址背后的机制，对于促进高
铁站点站城融合以及有效引导城市空间与社会经济发展具有重要意义。 |
| 关键词: 高速铁路 站点选址 高铁经济 机制协调 |
| DOI：10.13791/j.cnki.hsfwest.20210404 |
| 分类号: |
| 基金项目:深圳市基础研究计划重点项目（GXWD2020123
1165807007-20200811151825001） |
|
| The Challenge of Integrated Transport and Land Use in the Era of High-Speed Rail:Decoding Station Placement in China |
|
DUAN Yang,HE Zhenzi,YANG Jiawen
|
| Abstract: |
| Station placement has been a controversial topic in China’s high-speed railway (HSR)
development. The media and the literature have frequently mentioned that many HSR stations
are placed too far from the cities they intend to serve, and new districts planned around HSR
stations are becoming ghost towns. In addition, those mis-placed stations reflect the poor
connection of HSR and local urban planning. Location choice of HSR station can significantly
influence the accessibility and social-economic benefits brought by HSR investment.
Therefore, the decision-making process underlying HSR station placement has significant
policy implications.
As a result of multi-stakeholder game, station placement is affected by not only geographical
conditions and technical factors, but also political and economic factors. This paper reviews the
underlying principles of HSR station placements under the changing circumstances of HSR funding.
We find out that decisions on station placement are driven by four distinct factors: passengers’ access
to HSR stations, cost constraint of the rail company, local government’s desire for land development
revenue, and the equity concern of the central government. These factors in many circumstances
contradicts with each other, and their relative importance largely shapes the outcome of station
placement. The observed station placement outcome, therefore, could be explained with a framework
incorporating these four factors. With this framework, this paper explains a group of representative
cases of HSR station placement.
Firstly, it is not rare that travelers’ convenience is emphasized in HSR station location choice.
Noticeable examples include Shanghai Hongqiao Station and Shenzhen Futian Station. Shanghai
Hongqiao rail Station claims to be the most passenger friendly air-rail transport hub in China. It
enables easy connections between HSR and flight. This location selection was made possible because
the reform in the national rail system happened to increase the negotiation power of Shanghai city government. Shenzhen Futian rail station, secondary to Shenzhen North Station, is at the very center of Shenzhen. It was completely funded by the local
government. It aims to offer a better intercity rail travel experience for travelers whose trips originate or end around the city government center. The
economic and political power of Shenzhen and Shanghai plays a vital role to place stations at such location, despite its relatively high engineering cost.
Secondly, the stations’ placement in most secondary cities are affected by the rail company’s desire to save engineering cost and to shorten travel time
between the major anchor cities. The former Ministry of Railway introduced the principle of “big and fast” for HSR projects, which prioritizes service
quality for the regional centers at the expense of that for smaller cities. As a result, typical stations in the secondary city have to be relatively distanced from
the central part of the city in order to save engineering cost and to maintain operational line-haul speed. It frequently happens that HSR stations are so
distanced from the pre-existing urban area that the plan to build an urban settlement around the new HSR station imposes a great challenge.
Thirdly, a few widely criticized HSR station placement are produced out of political equity rather than transportation demand. As HSR becomes
a symbol of modernity, leaders of various local governments compete for HSR services. China’s planning rule for HSR says that local governments are
qualified to have a station if the rail track passes its jurisdiction, which unfortunately results in unnecessary and sub-optimum station placement. In addition,
when HSR service and HSR stations are used as a measure for poverty reduction in China’s relatively under-developed inner parts, the weak city center there
can hardly plays as an anchor point for station placement. One representative case is Xiaoganbei rail station, which claims to be China’s No.1 HSR station
when ranked by the distance to the city center.
Fourthly, with a strong interest in land lease profits, local governments are quite willing to put the station at the periphery or even outside the pre-
existing built-up area, expecting great land value increments around HSR stations. However, unfulfilled development around HSR stations creates a
persistent impression that the station has been placed at wrong location. The existing experience tells us that HSR service alone is not sufficient to create a
new city. The case of Huizhounan rail station and Guangzhounan Rail Station, tell that stable and favorable urban and regional plans are essential for timely
land development around the new HSR stations.
Overall, those mis-placed HSR stations represent a new challenge to connect urban development and transportation investment in the HSR era. The so-
called “mis-placed HSR stations” may not be truly mis-placed, but reflects a variety of station placement outcome. Station placement is driven by mainly
four factors, and their relative importance shapes the dynamics of station-placement. Those rationales behind the HSR station placement can also bring
some inspirations for the future development. As the railway investment and operation becomes more market-oriented, the funding source of HSR project
will increasingly shift toward province and local governments, which gives them greater bargaining power in HSR alignment and station placement. HSR
stations to be planned are opportunities for resourceful local governments who are ambitious enough to reshape its urban spatial structure with the new HSR
station, as long as the risk of debt is taken good care of. For HSR stations in operation, they serve as nodes in the transport network. The vitality of their
surrounding area relies on and interfere with the function of HSR stations. Existing research tells us that a value-capture mechanism based on real estate
property could serve as a venue to improve the co-existence of the station and its surrounding area.. |
| Key words: HSR Station Placement HSR Economy Institutional Coordination |
