老旧小区自主更新的实践难点与政策支持进展分析OA

Under multiple constraints such as drastic changes in the real estate supply-demand relationship and fiscal austerity,China's regeneration of old residential communities urgently needs to explore a new"owner-driven regeneration"pathway led by property owners and residents.In recent years,guided by central policies,local governments in Beijing,Hangzhou,Guangzhou and other cities have introduced differentiated supporting policies and actively promoted owner-driven practices represented by"demolition and reconstruction on the original site".However,its large-scale promotion faces prominent practical challenges:dilemmas of collective action and the absence of resident self-organization capabilities,insufficient effective funding mechanisms and imbalanced benefit distribution,difficulties in property right disposal and floor area adjustment,inadequate whole-process management coordination and weak foundations for long-term operation and maintenance.More precise policy exploration and practical breakthroughs are urgently required.Relevant policies should act as both procedural constraints and institutional rules to regulate collective actions,helping scattered property owners shift from individual rationality to collective cooperation.From the perspective of policy instruments,this paper constructs a three-dimensional analytical framework of"regulatory domain—instrument type—intervention stage"to examine how existing policies respond to the governance problems of owner-driven regeneration.The regulatory domain identifies the objects and issues addressed by policy intervention,including stakeholders,funding,space,and operation and maintenance;the instrument type explains the ways in which policies exert influence,including supply-oriented,demand-oriented,and environment-oriented policy instruments;and the intervention stage reflects the temporal position of policy instruments within the project cycle,including the pre-regeneration,mid-regeneration,and post-regeneration stages.The paper first analyzes the practical difficulties and policy gaps,then conducts textual interpretation and quantitative analysis of 53 typical local policy documents related to owner-driven regeneration.Combined with typical cases from multiple cities,it summarizes prevailing governance dilemmas,implementation bottlenecks and innovative practices.The findings show that,in terms of regulatory domain,current policy instruments are mainly concentrated in stakeholder and space measures,while funding measures account for the lowest proportion.However,the shortage of instruments concerning benefit distribution,operation and maintenance,and long-term mechanisms indicates that the policy system has not yet formed a complete financial and governance closed loop.In terms of instrument type,environment-oriented policy instruments occupy a dominant position,especially organizational mechanisms,process management,and technical standards.This suggests that owner-driven regeneration of old residential communities is still in the stage of rule construction and procedural standardization.By contrast,supply-oriented and demand-oriented policy instruments are insufficient,among which public service,platform service and market cultivation instruments are particularly lacking.In terms of intervention stage,policy instruments are mainly concentrated in the mid-regeneration stage,followed by the pre-regeneration stage,while post-regeneration instruments are clearly inadequate.Existing policies pay more attention to organizational division of labor and project approval before renovation,as well as plan formulation,examination and approval,construction implementation and process management during renovation.Based on these findings,this paper argues that the current policy system for owner-driven regeneration has three structural imbalances.First,the imbalance in domain coverage is reflected in the absence of a complete funding closed loop and the weakness of long-term operation and maintenance mechanisms.Future policies should clarify the funding responsibilities of all parties,improve the benefit distribution mechanism,strengthen financial measures within supply-oriented instruments.Second,the imbalance in supply-demand structure is reflected in the dominance of regulation and the weakness of incentives.Policy improvement should shift from a regulation-dominated model toward a combined model of institutional regulation and incentive guidance,enhance residents'willingness and ability to contribute funds,expand the use of financial instruments,and clarify the scenarios and rights of social capital participation.Third,the imbalance in stage configuration is reflected in the insufficient supply of post-regeneration policy instruments and the lack of an evaluation feedback mechanism.It is necessary to establish a"pre-assessment and post-evaluation"mechanism.Overall,the institutional improvement of owner-driven regeneration requires continuous tracking of local pilot practices,iterative policy learning,and a transition from experience-based exploration to mature institutional arrangements,so as to form a sustainable practice pathway featuring resident dominance,government guidance,market participation,and rule of law safeguards.