孙睿 著 陈敏 译

Written by Saul Wilson, Translated by Chen Min

关键词：区划法；控规；规划史；美国城市规划；产权；城市更新

Keywords：Zoning; Regulatory Detailed Planning; Planning History; American Planning; Property Rights; Urban Renewal

摘要：

尽管在诸多技术层面与美国区划法相近，中国的控制性详细规划在产权分配方面扮演着完全不同的角色。鉴于美国区划出现在私有产权盛行良久之后，因此象征着对现行产权的一种削减；中国的控制性详细规划则明确了政府会将何种产权授予开发商。因此，当开发商寻求规划变更时，美国对此更为宽容，而中国的制度却把这种行为视作试图变相谋取国家资源。无论如何，这两个国家的开发商都会设法对规划条件施加影响：美国开发商的做法是与当地政府公开谈判，而中国开发商不得不通过更加潜移默化的方式进行游说。长期而言，中国的规划条件调整使得政府以外的机构主导城市再开发项目的难度增大——无论其规模多小；但另一方面，国家也得以分享更多的土地使用价值。由此，虽然中国的控制性详细规划与美国区划法在形式上相似，但二者的作用并不相同，其对城市开发和再开发的影响也大相径庭。

Abstract：

While similar to American zoning in many technical aspects, Chinese detailed control plans play a substantially different role in the distribution of property rights. Whereas American zoning as invented long after privately held property was widespread, and hence represented a diminution of extant property rights, Chinese detailed control plans clarify what property rights the state will sell to developers. As a result, the American zoning regime is more tolerant of developers seeking changes to zoning, while the Chinese system generally sees such behavior as an effort to get discounted access to state resources. Nonetheless, developers in both countries seek to influence planning restrictions: American developers do so through open negotiations with local governments, while Chinese developers are forced into more surreptitious lobbying. In the long run, inflexible planning restrictions make it very hard for anyone but the government to legally undertake even the smallest urban redevelopment projects in China; on the other hand, the state is able to get a higher share of land use value. Hence, while Chinese detailed control plans may formally resemble American zoning, they perform different functions with sharply different implications for urban development and redevelopment.

孙睿，哈佛大学政治系博士研究生。skwilson1@g.harvard.edu

陈敏，城乡规划专业学士。1786803378@qq.com

• [1] CAI H, HENDERSON J V, ZHANG Q. China’s land market auctions: evidence of corruption?[J]. The RAND journal of economics, 2013, 44(3): 488-521.

  [2] CAPPEL A J. A walk along Willow: patterns of land use coordination in prezoning New Haven (1870-1926) Note[J]. Yale law journal, 1991, 101: 617-642.

  [3] CHEN T. A state beyond the state: Shenzhen and the transformation of urban China[M]. Nai 010 Publishers Rotterdam, 2017. OCLC: ocn972286392.

  [4] City of Boston. Downtown zoning: intermin planning overlay district (draft)[Z]. Boston, Mass, 1986.

  [5] CLOWNEY S. A walk along Willard: a revised look at land use coordination in pre-zoning New Haven Note[J]. Yale law journal, 2015, 115: 116-185.

  [6] CORRIGALL J. Hong Kong’s lease-modification policy is fundamentally flawed[N]. South China Morning Post, 2013-10-16. https://www.scmp.com/property/hong-kong-china/article/1332325/hong-kongs-lease-modificationpolicy-fundamentally-flawed.

  [7] 丁祖年 , 编 .《 浙江省城乡规划条例》释义与应用 [M]. 浙江省人民出版社, 2011.

  [8] HIROKAWA K H. Making sense of a misunderstanding of the planning process: examining the relationship between zoning and rezoning under the change-or-mistake rule[J]. Urban lawyer, 2012, 44: 295-344.

  [9] 洪国城, 邱爽, 赵燕菁. 制度设计视角下的城市存量规划与管理[J]. 上海城市规划, 2015(3): 16-19.

  [10] KIM M. Upzoning and value capture: how U.S. local governments use land use regulation power to create and capture value from real estate developments[J]. Land use policy, 2020, 95.

  [11] LAI L W, FONG K. Town planning practice: context, procedures and statistics for Hong Kong[M]. Hong Kong: Hong Kong University Press, 2000.

  [12] LAI L W, HO D C, LEUNG H. Change in use of land: a practical guide to development in Hong Kong[M]. 2nd ed. Hong Kong: Hong Kong University Press, 2010.

  [13] 李建波, 张京祥. 中西方城市更新演化比较研究[J]. 城市问题, 2003(5): 68-71,49.

  [14] LINN B. Lease modification rules logical and rational, says lands director[N]. South China Morning Post, 2013-10-23. https://www.scmp.com/property/hong-kong-china/article/1337377/lease-modification-rules-logical-andrational-says-lands.

  [15] LISTOKIN D, WALKER C. The subdivision and site plan handbook[M]. New Brunswick, N.J: Rutgers, State University of New Jersey, Center for Urban Policy Research, 1989: 127-175.

  [16] LYMAN T, ed. Corruption in land use and building regulation[Z]. Volume 1. Washington: U.S. Department of Justice, Law Enforcement Assistance Administration, National Institute of Law Enforcement and Criminal Justice, 1979.

  [17] MANDELKER D R. New perspectives on planned unit developments[J]. Real property, trust and estate law journal, 2017, 52: 229-290.

  [18] METZENBAUM J. The history of zoning – a thumbnail sketch[J]. Western Reserve law review, 1957(9): 36-42.

  [19] SANDRONI P. A new financial instrument of value capture in S?o Paulo: certificates of additional construction potential[M] // INGRAM G, HONG Y, eds. Municipal revenues and land policies. Cambridge, MA: Lincoln Institute of Land Policy, 2010.

  [20] 沈赟. 控制性详细规划在改革开放初期的诞生与演进——以上海虹桥新区开发和温州旧城改造为例[D]. 同济大学硕士论文, 2017.

  [21] SMITH N R. Planning powers as property rights in contemporary China[J]. Journal of planning education and research, 2018: 0739456X1878762.

  [22] 孙施文. 解析中国城市规划[J]. 城乡规划, 2017(1): 12-21.

  [23] TAYLOR Z. The politics of metropolitan development[D]. PhD thesis, University of Toronto, 2015.

  [24] 王伟, 谢英挺. 积极有效的开发控制规划实践与探索——以厦门为例[J]. 城市规划, 2010, 34(10): 66-69.

  [25] 于斐, 涂慧君, 张晓芾. 控规修改的市场公平及公众利益影响——对昆明市控规修改的数据分析[J]. 规划师, 2016(5): 41-46.

  [26] 赵燕菁. 存量规划：理论与实践[J]. 北京规划建设, 2014(4): 153-156.

  
  

• 收起