| 摘要: |
| 财政可持续是实现城市更新长期持续
健康发展的重要保障。面对城市更新与财政可
持续之间的现实矛盾，空间生产理论能解析财
政推动城市空间再造和价值提升的内在逻辑，
促进制度建设和空间生产实践的协调统一。从
空间生产理论出发，构建“制度空间重构—多元
主体行为选择—社会空间重构”的空间生产逻
辑框架，提出未来城市更新财政可持续的五大
基本逻辑和四大基本准则。最后以北京劲松模
式为例，实证分析本逻辑框架的适用性，并提出
相应的政策建议，以期为城市高质量发展背景
下城市更新财政可持续提供决策参考。 |
| 关键词: ：城市更新 财政可持续性 空间生产 劲松模式 |
| DOI：10.13791/j.cnki.hsfwest.20240103 |
| 分类号: |
| 基金项目:国家自然科学基金面上项目（72174219））；中央财
经大学一流学科建设项目（CUFEZF202301） |
|
| Logic and practice of spatial production for urban regeneration and fiscal sustainability |
|
WEN Fenghua,JIANG Yating
|
| Abstract: |
| Urban regeneration, as a connotative development model during the period of urban
stock development and high-quality urban construction, is of great significance for effectively
addressing “urban diseases” and promoting the modernization of urban governance systems and
governance capabilities. Since 1949, China’s urban regeneration policy has undergone four stages
of transformation: the exploration stage of a stable and progressive policy that shifts from consumer
cities to production cities; the learning stage of an open policy that focuses on improving urban
functions and environment; and the radical policy reform stage guided by the concepts of land
finance and urban management; the stage of governance oriented urban regeneration centered on the
people. In the future, urban regeneration will still be an important way for China’s new urbanization
construction.
Fiscal sustainability provides an important fiscal guarantee for the long-term and sustainable
promotion of urban regeneration. However, due to the fact that urban regeneration often takes a long
time, it can bring a huge fiscal burden to governments, enterprises, or residents, especially under
multiple pressures such as the tightening of resource and environmental constraints and the global
economic downturn.
Previous research on urban regeneration policies focused more on the investment, finance,
taxation and fiscal, put more attention to analyze the relationships between various stakeholders
in urban regeneration, or simply policy innovation and incentives. However, only when the
local government’s fiscal revenue can meet all the fiscal expenditures in a period of time can the
local government maintain an orderly operation and a virtuous cycle of finance itself in the long
run, namely fiscal sustainability, while the academic attention to fiscal sustainability of urban
regeneration is relatively inadequate.
Therefore, based on the theory of space production, this paper constructs a logical framework
of “institutional space reconstruction-multiple subject behavior choices-social space reconstruction”.
The theory of space production provides an effective path for explaining the fiscal promotion
of urban spatial reconstruction and value enhancement. Firstly, the political-institutional space
includes macro and systematic top-level policy systems as well as micro and flexible underlying
policy measures. The former involve the evolution of a series of laws and regulations, while the
latter pay more attention to the financial balance of local governments to solve the problem of tight
government financial funds. Secondly, urban regeneration involves the joint participation of multiple
actors, which have differentiated effects on urban regeneration due to differences in interests and
status, mainly including governments at all levels, the public, power subjects and market subjects.
Thirdly, the reconstruction of political-institutional space production leads to the reconstruction of
social-economic space. The reconstruction of stock space forms a positive interaction with multiple
subjects, prompting each subject to produce new demands, and then promoting the emergence or
reconstruction of new fiscal policies. On this basis, this paper proposes five basic logics and four
guidelines that are conducive to achieving fiscal sustainability in urban regeneration. The five logics
include urban regeneration value reconstruction, top-level policy design, and underlying logic of
fiscal sustainability, property rights innovation, and holistic governance. The four principles refer
to the principle that the government is neither absent nor offside, the market adheres to long-term
operation, the rights subject user pays, and public participation and long-term supervision.Under this framework, this paper takes the urban regeneration of Jinsong Community as a case. Jinsong model successfully implements the fiscal
sustainability logic of urban regeneration based on spatial production theory. Research has found that: Jinsong Community actively seized the policy
opportunity of the state to promote the transformation of old residential areas, and cooperated with China Visionary and various government departments to
carry out the transformation work of Jinsong old communities to promote the reconstruction of community value; explore the innovation of investment and
financing models for urban regeneration, the untying of property rights and operation rights, and other models to ease the pressure on government finances
and promote the balance of enterprise funds; build on diverse synergy, and establish a sustainable relationship featuring mutual benefit, win-win cooperation,
mutual assistance and mutual trust among all parties. It is necessary to recognize the objective laws of space production. In general, the spatial reconstruction
of urban regeneration fiscal system result from the promotion of community regeneration, the innovation of investment and financing mechanisms, and the
property rights innovation. The reconstruction of institutional space provides policy guarantees for the reconstruction of social space, which is beneficial for
both enterprises and governments to achieve long-term fiscal sustainability. Moreover, the success of the spatial transformation of old residential areas has a
negative react on the construction of urban regeneration institution, and the interweaving and evolution of “institution-space” promotes the progress of urban
regeneration orderly in the long term. |
| Key words: urban regeneration fiscal sustainability space production Jinsong model |
