在此前我國城(cheng)鎮化過程中(zhong)(zhong),由于城(cheng)市(shi)發展方式(shi)創新(xin)的(de)滯后和(he)過度追(zhui)求物理空間形象的(de)政(zheng)(zheng)績觀導向,城(cheng)市(shi)建(jian)(jian)設中(zhong)(zhong)逆(ni)集約化現象日益突出。其中(zhong)(zhong),政(zheng)(zheng)府角色(se)模糊(hu)也是重要原因。只有大膽創新(xin)政(zheng)(zheng)務(wu)方式(shi),把市(shi)場主體可以完成的(de)建(jian)(jian)設、招商、運(yun)營等工作(zuo)交給(gei)市(shi)場,政(zheng)(zheng)府才能(neng)集中(zhong)(zhong)力量做好解決環境保護(hu)、市(shi)場交易秩(zhi)序維護(hu)、公(gong)共(gong)衛生、知識產權保護(hu)等公(gong)共(gong)服(fu)務(wu)和(he)公(gong)共(gong)管理的(de)本職工作(zuo)
針對當前(qian)城(cheng)市新區、新城(cheng)建設中脫離實(shi)際、貪大求洋、嚴(yan)重浪費土地(di)空間的(de)現象(xiang),國土資源部日(ri)前(qian)再次強(qiang)調要注重實(shi)現節約集約用地(di),建議運用多種模(mo)式(shi)推(tui)動節地(di)建設,要求通過發展(zhan)“立體城(cheng)市”、軌道交通、導向型(xing)土地(di)綜(zong)合開發等,推(tui)進新城(cheng)、新區的(de)“節地(di)模(mo)式(shi)”建設。
近(jin)年(nian)(nian)來,我國(guo)城(cheng)市化規模顯著擴(kuo)大。在這個過程(cheng)中(zhong),由于城(cheng)市發(fa)展方式創(chuang)新的(de)(de)滯后和過度(du)追求(qiu)物理空間形象(xiang)(xiang)的(de)(de)政績(ji)觀導向,城(cheng)市建(jian)設中(zhong)逆集(ji)約(yue)化現象(xiang)(xiang)日益突出。國(guo)土(tu)(tu)資源部去年(nian)(nian)第三季度(du)開展的(de)(de)節約(yue)集(ji)約(yue)用地(di)專項(xiang)督察(cha)發(fa)現,2014年(nian)(nian)9月(yue)30日前的(de)(de)近(jin)5年(nian)(nian),全國(guo)批而未供(gong)土(tu)(tu)地(di)1300.99萬畝,閑置土(tu)(tu)地(di)105.27萬畝;一(yi)方面(mian)是(shi)新型城(cheng)鎮化面(mian)臨的(de)(de)土(tu)(tu)地(di)供(gong)需缺口(kou),另一(yi)方面(mian)是(shi)土(tu)(tu)地(di)利用普遍存在的(de)(de)低效、閑置情況。
目前(qian),我國大(da)多數新城新區的平均(jun)容積(ji)(ji)率在0.8至(zhi)1.2,很(hen)少超過1.5,而紐約CBD容積(ji)(ji)率為(wei)5至(zhi)10,新加坡是6,首爾更是達到(dao)10以(yi)(yi)上。國土資源部(bu)要(yao)求,到(dao)2020年,單(dan)位固定資產投資建設用(yong)地(di)面積(ji)(ji)下降80%,城市新區平均(jun)容積(ji)(ji)率比(bi)現城區提高30%以(yi)(yi)上。以(yi)(yi)5年之功(gong)實現這一目標,難度(du)不(bu)小,其根本障礙(ai)來自于(yu)現有城市統籌(chou)發展協(xie)調推(tui)進的體制機制。正(zheng)因如(ru)此,誕生(sheng)于(yu)新加坡的集約型立體城市模式(shi)近年來受(shou)到(dao)國內部(bu)分(fen)地(di)區廣泛關注。
實施立(li)(li)體城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)模式的(de)關(guan)鍵,在于根據城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)功(gong)能板塊的(de)需求(qiu),統籌布(bu)局、集(ji)約運營城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)各類(lei)(lei)資(zi)源。通過豎(shu)向發展(zhan)、大(da)疏(shu)大(da)密(mi)、產城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)一(yi)體、資(zi)源集(ji)約、綠色交(jiao)(jiao)通、智慧管(guan)(guan)理等(deng)規(gui)劃發展(zhan),完(wan)善城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)化(hua)布(bu)局和形態,改善城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)低密(mi)度分散化(hua)傾(qing)向,提升城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)密(mi)集(ji)度,提高城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)土(tu)地(di)使用效率(lv)。長(chang)期以(yi)來(lai),我國地(di)方政(zheng)(zheng)府既是城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)規(gui)劃者、決(jue)策者、管(guan)(guan)理者,又是開發建設(she)者,這樣(yang)的(de)角(jiao)色混(hun)搭在城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)化(hua)初級階段自(zi)然具(ju)備效率(lv)優勢,但(dan)角(jiao)色模糊,政(zheng)(zheng)企、政(zheng)(zheng)事不分,導(dao)致了城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)發展(zhan)中類(lei)(lei)似于土(tu)地(di)浪(lang)費等(deng)諸多好看不好用的(de)后遺(yi)癥。從國內(nei)外經驗來(lai)看,立(li)(li)體城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)的(de)開發主(zhu)體主(zhu)要是城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)運營商,在城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)總規(gui)、詳規(gui)、綠規(gui)等(deng)框架下(xia),在政(zheng)(zheng)府管(guan)(guan)理部門(men)的(de)監督下(xia),由城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)運營企業統籌整合(he)各類(lei)(lei)生產生活功(gong)能資(zi)源,其(qi)結果不僅更加貼近城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)居民需求(qiu),而且成本(ben)(ben)低、效率(lv)高。只有大(da)膽創新政(zheng)(zheng)務方式,把市(shi)(shi)(shi)(shi)(shi)場主(zhu)體可以(yi)完(wan)成的(de)建設(she)、招商、運營等(deng)工作(zuo)交(jiao)(jiao)給(gei)市(shi)(shi)(shi)(shi)(shi)場,城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)市(shi)(shi)(shi)(shi)(shi)政(zheng)(zheng)府才能集(ji)中力量做好解決(jue)環境(jing)保護、市(shi)(shi)(shi)(shi)(shi)場交(jiao)(jiao)易(yi)秩序(xu)維(wei)護、公共衛生、知識(shi)產權保護等(deng)公共服務和公共管(guan)(guan)理的(de)本(ben)(ben)職工作(zuo)。
所以說,城市新(xin)區、新(xin)城的建設模式創新(xin),其內涵就不僅僅是(shi)節約(yue)集約(yue)用地這么簡單了。
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