我国高铁新城建设的现状反思与优化路径
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摘要
在我国高铁快速发展带动下,高铁新城大量涌现,随之而来的问题也逐渐显现。本文基于对国内外典型案例的对比研究,从决策定位、规划设计、开发建设三个角度分析我国高铁新城现状建设问题成因并提出优化措施。在决策层面,实行站城一体化模式和城市更新策略;在规划设计层面,明确小规模、渐进式、缓节奏的思路和一体化、人性化、特色化的理念;在开发建设层面,落实公私合作开发策略,构建科学规范的管理平台,推行奖励政策,为我国高铁新城建设提供实效性的优化路径。
In the past five years, railway investment has been the most concentrated and intensive period in China's history. Driven by the rapid development of high-speed rail in China, many local governments hope to build new cities or districts relying on high-speed rail to promote the continuous warming of land market, and even solve various problems in old city and old urban areas. The purpose of the high-speed rail new towns(Abbr. HSR New Town) is to give more urban functions to the traffic distribution centers by relying on the development of highspeed railway stations and their surrounding areas, and to form a space region with independent spatial structure, social functions and industrial support through supporting construction of residential, commercial, commercial and entertainment facilities. This paper summarizes the existing problems in the development of HSR New Town in China, and takes 37 high-speed rail stations in Fujian Province as an example to conduct empirical research. The current situation of HSR New Town is summarized as four main problems: remote location, inconvenient travel, low construction volume and difficult to gather popularity, lack of features on one side of a thousand cities, single financing debt risk. On this basis, based on the comparative study of domestic cases and typical cases of Japanese Shinkansen and European railways, this paper analyses the causes of the problems in the current construction of China's HSR New Town from three perspectives: decision-making orientation, planning and design, development and construction. The causes of the problem are summarized as the decision-making orientation level. Because of the differences in cost balance and revenue mode between railway departments and local governments, there are different tendencies in the selection of railway lines and stations. At the planning and design level, the current separation of station and city spatial layout, the pursuit of land expansion construction ideas cannot bring intensive and efficient compact urban space. At the level of development and construction, due to the dominance of the government under the existing administrative system and the emphasis on performance and finance, local governments are over-involved in decision-making, planning more reflects the will of the government, and market and public participation are squeezed. Finally, from the perspective of decision-making, planning and design, development and construction, this paper puts forward the optimization strategies for the current situation of HSR New Town in China. At the decision-making level, it is suggested to change the thinking of decision-making by setting up a special HSR New Town or district management committee to promote the overall coordination of traffic construction and urban development, and to form a virtuous circular development model in which railway traffic construction and urban regional development promote each other. At the same time, it is proposed that the construction of the surrounding areas should be from incremental development to inventory revitalization, implement the mode of station-city integration and urban renewal strategy, weigh the interests of the owner of property rights through benefit compensation after development, and carry out requirements and constraints through legislation. At the planning and design level, it is suggested to improve the planning and design, and to clarify the small-scale, gradual and slow-paced planning ideas and integrated, humanized and characteristic design concepts. At the level of development and construction, we should innovate construction paths, implement public-private cooperative development strategies, build a scientific and standardized management platform, break the existing organizational mode of dividing functions and ownership by space, coordinate the relationship among the development subjects through project organization, and coordinate the development and construction of the surrounding areas of the new town. The formulation of incentive policies and the rational use of private capital and public power are conducive to promoting all stakeholders to achieve common goals. Define the phased objectives and set the short-, medium-and long-term goals respectively. In the process of phased development, we can review the direction of development and adjust the target orientation, scale and development mode of the station area effectively when we encounter problems. Finally, the new urban problems caused by the construction of HSR New Town need to fundamentally change the way of thinking of the government, relevant departments and designers, and optimize and adjust the three aspects of decision-making positioning, planning and design, development and construction. By putting forward pertinent strategies, a scientific and effective decision-making-planning-implementation integrated development and construction system is constructed to provide an effective optimization path for the construction of HSR New Town in China.
In the past five years, railway investment has been the most concentrated and intensive period in China's history. Driven by the rapid development of high-speed rail in China, many local governments hope to build new cities or districts relying on high-speed rail to promote the continuous warming of land market, and even solve various problems in old city and old urban areas. The purpose of the high-speed rail new towns(Abbr. HSR New Town) is to give more urban functions to the traffic distribution centers by relying on the development of highspeed railway stations and their surrounding areas, and to form a space region with independent spatial structure, social functions and industrial support through supporting construction of residential, commercial, commercial and entertainment facilities. This paper summarizes the existing problems in the development of HSR New Town in China, and takes 37 high-speed rail stations in Fujian Province as an example to conduct empirical research. The current situation of HSR New Town is summarized as four main problems: remote location, inconvenient travel, low construction volume and difficult to gather popularity, lack of features on one side of a thousand cities, single financing debt risk. On this basis, based on the comparative study of domestic cases and typical cases of Japanese Shinkansen and European railways, this paper analyses the causes of the problems in the current construction of China's HSR New Town from three perspectives: decision-making orientation, planning and design, development and construction. The causes of the problem are summarized as the decision-making orientation level. Because of the differences in cost balance and revenue mode between railway departments and local governments, there are different tendencies in the selection of railway lines and stations. At the planning and design level, the current separation of station and city spatial layout, the pursuit of land expansion construction ideas cannot bring intensive and efficient compact urban space. At the level of development and construction, due to the dominance of the government under the existing administrative system and the emphasis on performance and finance, local governments are over-involved in decision-making, planning more reflects the will of the government, and market and public participation are squeezed. Finally, from the perspective of decision-making, planning and design, development and construction, this paper puts forward the optimization strategies for the current situation of HSR New Town in China. At the decision-making level, it is suggested to change the thinking of decision-making by setting up a special HSR New Town or district management committee to promote the overall coordination of traffic construction and urban development, and to form a virtuous circular development model in which railway traffic construction and urban regional development promote each other. At the same time, it is proposed that the construction of the surrounding areas should be from incremental development to inventory revitalization, implement the mode of station-city integration and urban renewal strategy, weigh the interests of the owner of property rights through benefit compensation after development, and carry out requirements and constraints through legislation. At the planning and design level, it is suggested to improve the planning and design, and to clarify the small-scale, gradual and slow-paced planning ideas and integrated, humanized and characteristic design concepts. At the level of development and construction, we should innovate construction paths, implement public-private cooperative development strategies, build a scientific and standardized management platform, break the existing organizational mode of dividing functions and ownership by space, coordinate the relationship among the development subjects through project organization, and coordinate the development and construction of the surrounding areas of the new town. The formulation of incentive policies and the rational use of private capital and public power are conducive to promoting all stakeholders to achieve common goals. Define the phased objectives and set the short-, medium-and long-term goals respectively. In the process of phased development, we can review the direction of development and adjust the target orientation, scale and development mode of the station area effectively when we encounter problems. Finally, the new urban problems caused by the construction of HSR New Town need to fundamentally change the way of thinking of the government, relevant departments and designers, and optimize and adjust the three aspects of decision-making positioning, planning and design, development and construction. By putting forward pertinent strategies, a scientific and effective decision-making-planning-implementation integrated development and construction system is constructed to provide an effective optimization path for the construction of HSR New Town in China.
引文
[1]郭宁宁,于涛.高铁新城的空间效应研究进展及思考[J].现代城市研究,2018(8):115-122.GUO N N,YU T.Research progress and thinking on spatial effect of high-speed rail new town[J].Modern city research,2018(8):115-122.
[2]王姣娥,丁金学.高速铁路对中国城市空间结构的影响研究[J].国际城市规划,2011,26(6):49-54.WANG J E,DING J X.Study on the influence of high-speed railway on urban spatial structure in China[J].International Urban Planning,2011,26(6):49-54.
[3]罗鹏飞,徐逸伦,张楠楠.高速铁路对区域可达性的影响研究——以沪宁地区为例[J].经济地理,2004(3):407-410.LUO P F,XU Y L,ZHANG N N.The impact of high-speed railway on regional accessibility:A case study of Shanghai-Nanjing region[J].Economic geography,2004(3):407-410.
[4]王缉宪.高速铁路影响城市与区域发展的机理[J].国际城市规划,2011,26(6):1-5.WANG J X.The mechanism of highspeed railway affecting urban and regional development[J].International Urban Planning,2011,26(6):1-5.
[5]贺剑锋.关于中国高速铁路可达性的研究:以长三角为例[J].国际城市规划,2011,26(6):55-62.HE J F.Research on the accessibility of China's high-speed railway:Taking the Yangtze River Delta as an example[J].International Urban Planning,2011,26(6):55-62.
[6]于涛,陈昭,朱鹏宇.高铁驱动中国城市郊区化的特征与机制研究——以京沪高铁为例[J].地理科学,2012,32(9):1041-1046.YU T,CHEN Z,ZHU P Y.Study on the Characteristics and Mechanism of Suburbanization Driven by High-speed Rail in China:Taking Beijing-Shanghai High-speed Rail as an Example[J].Geographic Science,2012,32(9):1041-1046.
[7]刘崇.维也纳“班霍夫城”——迈向可持续发展的新城区[J].西部人居环境学刊,2015,30(6):104-106.LIU C.Banhof City,Vienna,Towards a New Urban Area for Sustainable Development[J].Journal of Human Settlements in West China,2015,30(6):104-106.
[8]王兰.高速铁路对城市空间影响的研究框架及实证[J].规划师,2011,27(7):13-19.WANG L.Research framework and demonstration of the impact of high-speed railway on urban space[J].Planners,2011,27(7):13-19.
[9]GERT-JOOST P,LUCA B,HANS DE J.Gaining Insight in the Development Potential of Station Areas:A Decade of Node-Place Modeling in the Netherlands[J].Planning Practice and Research,2006,2(4):443-462.
[10]林辰辉.我国高铁枢纽站区开发的影响因素研究[J].国际城市规划,2011,26(6):72-77.LIN C H.Study on the Influencing Factors of the Development of Highspeed Railway Hub Stations in China[J].International Urban Planning,2011,26(6):72-77.
[11]殷铭,汤晋,段进.站点地区开发与城市空间的协同发展[J].国际城市规划,2013(3):70-77.YIN M,TANG J,DUAN J.Synergistic development of site area and urban space[J].International Urban Planning,2013(3):70-77.
[12]史官清,张先平,秦迪.我国高铁新城的使命缺失与建设建议[J].城市发展研究,2014(10):1-5.SHI G Q,ZHANG X P,QIN D.Mission Deficiency and Construction Suggestions for China's High-speed Railway New Town[J].Urban Development Research,2014(10):1-5.
[13]洪世键,姚超.高速铁路站点与城市空间演化:述评与反思[J].国际城市规划,2016,31(2):84-89.HONG S J,YAO C.High-speed Railway Station and Urban Space Evolution:Review and Reflection[J].International Urban Planning,2016,31(2):84-89.
[14]日建设计站城一体开发研究会.站城一体化开发——新一代公共交通指向型城市建设[M].北京:中国建筑工业出版社,2014.Research Institute of Integrated Station—City Development for Construction and Design.Integrated Station-City Development:New Generation of Public Transport Oriented Urban Construction[M].Beijing:China Construction Industry Press,2014.
[15]李文静,翟国方,何仲禹,等.日本站城一体化开发对我国高铁新城建设的启示——以新横滨站为例[J].国际城市规划,2016,31(3):111-118.LI W J,ZHAI G F,HE Z Y,et al.The Enlightenment of the Integrated Development of Station City in Japan on the Construction of New High-speed Railway Station in China—Taking New Yokohama Station as an Example[J].International Urban Planning,2016,31(3):111-118.
[16]李传成,谢育全,胡雯,等.高速铁路站点周边城市空间演变研究——以日本东海道新干线站点为例[J].城市规划,2017,41(6):99-107.LI C C,XIE Y Q,HU W,et al. Study on the evolution of urban space around high-speed railway stations—Taking Shinkansen station in Tokaido,Japan as an example[J].Urban planning,2017,41(6):99-107.
[17]彼得·波尔.高速铁路车站周边地区城市开发管理:四个欧洲城市的经验研究[J].周静,译.国际城市规划,2011,26(3):27-34.POL P.Urban Development and Management in the Peripheral Areas of High-Speed Railway Stations:An Empirical Study of Four European Cities[J].ZHOU J,trans.International Urban Planning,2011,26(3):27-34.
[18]冯奎,闫学东,郑明媚.中国新城新区发展报告:2016[M].北京:企业管理出版社,2016.FENG K,YAN X D,ZHENG M M.China New Town Development Report:2016[M].Beijing:Enterprise Management Press,2016.
[19]王兰.高铁新城规划与开发研究[M].上海:同济大学出版社,2016.WANG L.Research on the Planning and Development of High-speed Railway New Town[M].Shanghai:Tongji University Press,2016.
[20]臧鑫宇.绿色街区城市设计策略与方法研究[D].天津:天津大学,2014.ZANG X Y.Urban design strategies and methods of green blocks[D].Tianjin:Tianjin University,2014.
[21]唐凌超.轨道交通枢纽周边地区容积率奖励政策研究——以东京云雀丘地区为例[C]//中国城市规划学会,东莞市人民政府.持续发展理性规划——2017中国城市规划年会论文集(14规划实施与管理).中国城市规划学会,东莞市人民政府.北京:中国建筑工业出版社,2017:11.TANG LC.Research on the incentive policy of volume ratio in the surrounding areas of rail transit hub—Taking Skylark Hill area in Tokyo as an example[C]//China Urban Planning Society,Dongguan Municipal Government.Sustainable Development Rational Planning—Papers Collection of the Annual Conference of Chinese Urban Planning in 2017(14 Planning Implementation and Management).China Urban Planning Society,Dongguan Municipal People's Government.Beijing:China Construction Industry Publishing House,2017:11.
[2]王姣娥,丁金学.高速铁路对中国城市空间结构的影响研究[J].国际城市规划,2011,26(6):49-54.WANG J E,DING J X.Study on the influence of high-speed railway on urban spatial structure in China[J].International Urban Planning,2011,26(6):49-54.
[3]罗鹏飞,徐逸伦,张楠楠.高速铁路对区域可达性的影响研究——以沪宁地区为例[J].经济地理,2004(3):407-410.LUO P F,XU Y L,ZHANG N N.The impact of high-speed railway on regional accessibility:A case study of Shanghai-Nanjing region[J].Economic geography,2004(3):407-410.
[4]王缉宪.高速铁路影响城市与区域发展的机理[J].国际城市规划,2011,26(6):1-5.WANG J X.The mechanism of highspeed railway affecting urban and regional development[J].International Urban Planning,2011,26(6):1-5.
[5]贺剑锋.关于中国高速铁路可达性的研究:以长三角为例[J].国际城市规划,2011,26(6):55-62.HE J F.Research on the accessibility of China's high-speed railway:Taking the Yangtze River Delta as an example[J].International Urban Planning,2011,26(6):55-62.
[6]于涛,陈昭,朱鹏宇.高铁驱动中国城市郊区化的特征与机制研究——以京沪高铁为例[J].地理科学,2012,32(9):1041-1046.YU T,CHEN Z,ZHU P Y.Study on the Characteristics and Mechanism of Suburbanization Driven by High-speed Rail in China:Taking Beijing-Shanghai High-speed Rail as an Example[J].Geographic Science,2012,32(9):1041-1046.
[7]刘崇.维也纳“班霍夫城”——迈向可持续发展的新城区[J].西部人居环境学刊,2015,30(6):104-106.LIU C.Banhof City,Vienna,Towards a New Urban Area for Sustainable Development[J].Journal of Human Settlements in West China,2015,30(6):104-106.
[8]王兰.高速铁路对城市空间影响的研究框架及实证[J].规划师,2011,27(7):13-19.WANG L.Research framework and demonstration of the impact of high-speed railway on urban space[J].Planners,2011,27(7):13-19.
[9]GERT-JOOST P,LUCA B,HANS DE J.Gaining Insight in the Development Potential of Station Areas:A Decade of Node-Place Modeling in the Netherlands[J].Planning Practice and Research,2006,2(4):443-462.
[10]林辰辉.我国高铁枢纽站区开发的影响因素研究[J].国际城市规划,2011,26(6):72-77.LIN C H.Study on the Influencing Factors of the Development of Highspeed Railway Hub Stations in China[J].International Urban Planning,2011,26(6):72-77.
[11]殷铭,汤晋,段进.站点地区开发与城市空间的协同发展[J].国际城市规划,2013(3):70-77.YIN M,TANG J,DUAN J.Synergistic development of site area and urban space[J].International Urban Planning,2013(3):70-77.
[12]史官清,张先平,秦迪.我国高铁新城的使命缺失与建设建议[J].城市发展研究,2014(10):1-5.SHI G Q,ZHANG X P,QIN D.Mission Deficiency and Construction Suggestions for China's High-speed Railway New Town[J].Urban Development Research,2014(10):1-5.
[13]洪世键,姚超.高速铁路站点与城市空间演化:述评与反思[J].国际城市规划,2016,31(2):84-89.HONG S J,YAO C.High-speed Railway Station and Urban Space Evolution:Review and Reflection[J].International Urban Planning,2016,31(2):84-89.
[14]日建设计站城一体开发研究会.站城一体化开发——新一代公共交通指向型城市建设[M].北京:中国建筑工业出版社,2014.Research Institute of Integrated Station—City Development for Construction and Design.Integrated Station-City Development:New Generation of Public Transport Oriented Urban Construction[M].Beijing:China Construction Industry Press,2014.
[15]李文静,翟国方,何仲禹,等.日本站城一体化开发对我国高铁新城建设的启示——以新横滨站为例[J].国际城市规划,2016,31(3):111-118.LI W J,ZHAI G F,HE Z Y,et al.The Enlightenment of the Integrated Development of Station City in Japan on the Construction of New High-speed Railway Station in China—Taking New Yokohama Station as an Example[J].International Urban Planning,2016,31(3):111-118.
[16]李传成,谢育全,胡雯,等.高速铁路站点周边城市空间演变研究——以日本东海道新干线站点为例[J].城市规划,2017,41(6):99-107.LI C C,XIE Y Q,HU W,et al. Study on the evolution of urban space around high-speed railway stations—Taking Shinkansen station in Tokaido,Japan as an example[J].Urban planning,2017,41(6):99-107.
[17]彼得·波尔.高速铁路车站周边地区城市开发管理:四个欧洲城市的经验研究[J].周静,译.国际城市规划,2011,26(3):27-34.POL P.Urban Development and Management in the Peripheral Areas of High-Speed Railway Stations:An Empirical Study of Four European Cities[J].ZHOU J,trans.International Urban Planning,2011,26(3):27-34.
[18]冯奎,闫学东,郑明媚.中国新城新区发展报告:2016[M].北京:企业管理出版社,2016.FENG K,YAN X D,ZHENG M M.China New Town Development Report:2016[M].Beijing:Enterprise Management Press,2016.
[19]王兰.高铁新城规划与开发研究[M].上海:同济大学出版社,2016.WANG L.Research on the Planning and Development of High-speed Railway New Town[M].Shanghai:Tongji University Press,2016.
[20]臧鑫宇.绿色街区城市设计策略与方法研究[D].天津:天津大学,2014.ZANG X Y.Urban design strategies and methods of green blocks[D].Tianjin:Tianjin University,2014.
[21]唐凌超.轨道交通枢纽周边地区容积率奖励政策研究——以东京云雀丘地区为例[C]//中国城市规划学会,东莞市人民政府.持续发展理性规划——2017中国城市规划年会论文集(14规划实施与管理).中国城市规划学会,东莞市人民政府.北京:中国建筑工业出版社,2017:11.TANG LC.Research on the incentive policy of volume ratio in the surrounding areas of rail transit hub—Taking Skylark Hill area in Tokyo as an example[C]//China Urban Planning Society,Dongguan Municipal Government.Sustainable Development Rational Planning—Papers Collection of the Annual Conference of Chinese Urban Planning in 2017(14 Planning Implementation and Management).China Urban Planning Society,Dongguan Municipal People's Government.Beijing:China Construction Industry Publishing House,2017:11.
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