胡亮

HU Liang

立足促进民间主体参与城市更新的视角，本文考察了中国台湾城市更新历程中相关政策的制定、变迁和实施效果。从政策变迁的历程看，台湾的城市更新最初由公办更新为主，后续转变为民办更新为主，继而发展为公私协力推进，如今涉及公共产权和公共利益领域的城市更新则再度交由政府主导。从效果看，政府以公权力让渡和“外借”、公共要素市场化、公信力背书等方式，有效调动了民间主体参与更新的积极性。然而，也因此面临两个长期挑战：一是民间主体以自身利益优先的项目谋划，与政府的意图并不契合，导致更新缺乏整体性和系统性；二是民间主体借由政府授权过度牟利，引发社会矛盾和利益冲突，使政府面临公信力危机。从时下的结果看，将公共资源交由市场配置可作为促进民间主体参与更新的手段之一，但政府部门对其施以规范监管同样不可或缺。在促进民办更新的同时，涉及公共利益、公共产权的更新还需仰赖公办更新，以填补市场化更新的漏洞。政府和市场并非竞争关系，而是分别进入不同的更新“场域”，达成各自的更新诉求。最后，笔者总结了台湾城市更新经验对大陆城市的启示。

Based on the promotion of private participation, this paper reviews the formulation changes and performance of urban renewal policies in Taiwan. Along with the policy changes, urban renewal in Taiwan has experienced a shift from public-led to private-led, and then to collaborative public-private partnerships. Now, Public-led renewal is re-emphasized in urban renewal involving public property rights and public interests. As for the performance of policy changes, Government has effectively mobilized private actors to participate in urban renewal through the transfer of planning rights, the marketization of public elements, and the endorsement of public credibility. These policies also expose the government to two long-term challenges: firstly, private actors prioritize their own interests in urban renewal projects, which do not match the government’s intentions, leading to fragmented and disorderly distribution of urban renewal projects. Secondly, private actors make excessive profits by using the government’s authorization, triggering social contradictions and conflicts, leading to the government’s credibility crisis. In terms of today’s results, marketisation of public resources has a positive effect on the promotion of private participation, while government regulation is also essential. Besides private-led urban renewal, government-led urban renewal is indispensable when public interests and public property rights are at stake. At last, this paper summarizes the experience that cities of Mainland cities can learn from Taiwan.

胡亮，硕士，北京清华同衡规划设计研究院有限公司，国际城市治理与规划所，主任工程师，高级工程师，注册城乡规划师。hl_nju@sina.com

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