سنجش پیامدهای فضایی تأمین مالی ابرپروژه‌های عمرانی شهر؛راه‌حل یا تولید مسائل جدید با موردکاوی بزرگراه طبقاتی صدر تهران

خیرالدین, رضا; کمالی, جواد; امیدی بهره‌مند, مسعود

doi:10.22034/uep.2025.545451.1706

سنجش پیامدهای فضایی تأمین مالی ابرپروژه‌های عمرانی شهر؛راه‌حل یا تولید مسائل جدید با موردکاوی بزرگراه طبقاتی صدر تهران

نوع مقاله : مقاله پژوهشی

نویسندگان

رضا خیرالدین ¹

جواد کمالی ²

مسعود امیدی بهره‌مند ²

¹ دانشیار گروه شهرسازی، دانشکدۀ معماری و شهرسازی، دانشگاه علم و صنعت ایران، تهران، ایران

² کارشناس ارشد شهرسازی، دانشکدۀ معماری و شهرسازی، دانشگاه علم و صنعت ایران، تهران، ایران

10.22034/uep.2025.545451.1706

چکیده

مقدمه
بزرگراه‌های شهری به‌ عنوان نمونه‌ای از ابرپروژه‌های عمرانی، نیازمند منابع مالی بسیار کلان هستند که غالباً فراتر از بودجه‌های سالانۀ کلان‌شهرهاست. تأمین مالی این پروژه‌ها از طریق روش‌هایی همچون اخذ وام، فاینانس، سرمایه‌گذاری و یا فروش تراکم ساختمانی صورت می‌گیرد. با این‌حال، اتخاذ تصمیمات سودمحور در نظام مالی شهرداری‌ها، پیامدهایی منفی به‌ویژه در حوزه‌های اقتصادی، اجتماعی و زیست‌محیطی به دنبال دارد. مطالعۀ موردی بزرگراه طبقاتی صدر در تهران نشان می‌دهد این پروژه از نظر مشخصات فنی و مهندسی و زمان اجرا یکی از موفقیت‌های افتخارآمیز مهندسی عمران در کشور و حتی در دنیا به شمار می‌رود. اما در کنار نقش مثبت در تسهیل جابه‌جایی، نحوۀ تأمین مالی آن موجب تحمیل آثار فضایی و کالبدی گسترده‌ای بر شهر شده است.
لذا ابتدا نحوۀ تأمین منابع مالی لازم برای احداث مگاپروژۀ بزرگراه صدر براساس منابع درآمدی شهرداری تهران تشریح می‌شود. سپس، آثار و پیامدهای فضایی تحمیل‌شده بر شهر سنجش و برآورد می‌شود که بر اثر نحوۀ تأمین منابع مالی این پروژه ایجاد شده‌اند. بدیهی است که پیامدهای احداث پروژه‌ای با این مقیاس ابعاد و وجوه مختلفی دارد. این پژوهش روی جوانب افزایش بار ساختمانی و افزایش تعداد اتومبیل شخصی تمرکز دارد.
مواد و روش‌ها
این پژوهش با رویکرد کمی و روش تبیینی ـ علّی انجام شده است. ابتدا بر اساس فهرست بهای شهرداری تهران، هزینه‌های ساخت بزرگراه طبقاتی صدر برآورد شد. سپس، با تحلیل مالیه شهرداری در بازۀ زمانی 1386 تا 1392، سهم درآمدهای پایدار و ناپایدار و به‌ویژه نقش فروش مازاد تراکم ساختمانی در تأمین هزینه‌ها بررسی شد. در ادامه، میزان بارگذاری ساختمانی، جمعیتی و ترافیکی ناشی از فروش تراکم در مناطق مختلف تهران محاسبه و پیامدهای فضایی آن تحلیل شد. داده‌های پژوهش به روش اسنادی و کتابخانه‌ای گردآوری و با روش معادل‌سازی ریالی و فضایی ارزیابی شد.
یافته‌ها
نتایج نشان می‌دهد حدود 74 درصد درآمدهای شهرداری تهران در دورۀ مورد مطالعه ناپایدار بوده و از این‌میان، فروش مازاد تراکم ساختمانی 85 درصد درآمدهای ناپایدار و درمجموع، 64 درصد کل درآمد شهرداری را تشکیل داده است. تأمین مالی ابرپروژۀ صدر عمدتاً از این طریق صورت گرفته و هزینه‌ای معادل 87,698 میلیارد ریال (به قیمت سال 1392) بر شهر تحمیل شده است. این امر به احداث واحدهای مسکونی خارج از طرح‌های فرادست، افزایش جمعیتی معادل 210 هزار نفر و ورود بالقوه 143 هزار خودرو به شبکۀ معابر شهری منجر شده است. به این‌ترتیب، راهکاری که برای حل مسئلۀ حمل‌ونقل شهری در نظر گرفته شده بود، خود به منبع تولید مسائل جدید کالبدی، جمعیتی و زیست‌محیطی بدل شده است. در ادامه رویکردهایی که بتوانند راه حل‌های اصولی پاسخ به جریان حمل‌و‌نقل عمومی باشند، به‌اختصار مورد اشاره قرار گرفته‌اند. توسعۀ شبکۀ مترو در مقیاس پهنه‌های داخل شهر و شبکه‌های قطار حومه‌ای برای توسعۀ حمل‌ونقل در مقیاس منطقۀ کلان‌شهری تهران از آن جمله‌اند. پروژه‌های حمل‌ونقل ریلی با اخذ وام از مرکز مالی و برگرداندن آن از محل درآمد بهره‌برداری شبکۀ حمل‌ونقل ریلی می‌توانند راه حلی پایدار باشند و پیامدهای فضایی نامطلوبی برای شهر ایجاد نکنند. توسعۀ شبکۀ حمل‌ونقل ریلی گسترش‌های پراکنده‌رویی شهری را تا حد زیادی مهار می‌کند. در عین حال، توسعۀ مطلوب و قابل کنترل و برنامه‌ریزی را برای شهر و پیرامون آن ممکن می‌سازد که ادامۀ پژوهش حاضر است.
نتیجه‌گیری
تجربۀ ساخت بزرگراه طبقاتی صدر نشان می‌دهد اتکا به منابع ناپایدار، به‌ویژه فروش تراکم ساختمانی، موجب تشدید بارگذاری فضایی و تولید معضلات جدید شهری می‌شود. به ‌جای این الگو، توسعۀ حمل‌ونقل عمومی مانند مترو با روش‌های تأمین مالی پایدار نظیر اخذ وام و بازگشت سرمایه از محل بهره‌برداری، می‌تواند اثربخش‌تر و عادلانه‌تر باشد. همچنین، استفاده از منابع مالی مبتنی بر عوارض استفاده از خودروهای شخصی برای احداث زیرساخت‌های جاده‌ای، علاوه بر جلوگیری از تحمیل هزینه بر همۀ شهروندان، به عدالت اجتماعی نزدیک‌تر است. در نهایت، ارزیابی هزینه ـ فایده ابرپروژه‌های شهری پیش از اجرا و توجه به پیامدهای فضایی آن‌ها ضرورتی اجتناب‌ناپذیر در مدیریت توسعۀ حمل‌ونقل عمومی کلان‌شهرهاست.

کلیدواژه‌ها

ابرپروژۀ عمرانی شهری

تأمین منابع مالی

تهران

پیامدهای فضایی

بزرگراه طبقاتی صدر

20.1001.1.28212118.1404.6.4.14.9

موضوعات

برنامه ریزی شهری

عنوان مقاله English

Measuring the Spatial Consequences of Urban Mega-Projects Financing: Sadr Multi-level Highway in Tehran as a Case Study; Solution or Creation of New Problems?

نویسندگان English

Reza Kheyroddin ¹

Javad Kamali ²

Masoud Omidi Bahremand ²

¹ Associate Professor, Department of Urbanism, School of Architecture and Environmental Design, Iran University of Science and Technology, Tehran, Iran

² Master’s in Urban Planning, Faculty of Architecture and Environmental Design, Iran University of Science and Technology, Tehran, Iran

چکیده English

Introduction
Urban highways, as examples of megaprojects, require massive financial resources that often exceed the annual budgets of metropolitan municipalities. Financing such projects is typically pursued through methods such as loans, foreign finance, investment, or the sale of building density rights. However, revenue-oriented decisions in municipal financial systems often impose negative consequences, particularly in economic, social, and environmental dimensions. The case of the Sadr Elevated Expressway in Tehran demonstrates that, alongside its positive role in facilitating mobility, the applied financing strategy has produced extensive spatial and physical consequences for the city. The study of the Sadr Expressway in Tehran reveals that this project is one of the notable achievements in civil engineering in the country and globally, in terms of technical and engineering specifications, as well as implementation time. However, in addition to its positive role in facilitating transportation, the way it is financed has imposed extensive spatial and physical effects on the city.
Therefore, the method of providing the necessary financial resources for the construction of the Sadr Expressway mega-project is initially explained based on the revenue sources of the Tehran Municipality. Then, the spatial effects and consequences imposed on the city are measured and estimated, which have been created as a result of the method of financing this project. The consequences of constructing a project of this scale have various dimensions and aspects. This research focuses aspects of growth in terms of increasing the construction load and the number of private cars.
Materials and Methods
This research employs a quantitative approach with an explanatory and causal method. First, the construction costs of the Sadr Elevated Expressway were estimated based on the Tehran Municipality’s cost schedules. Subsequently, the municipality’s finances from 2007 to 2013 were analyzed, with particular attention to the share of stable versus unstable revenues, and especially the role of selling additional building density in funding the project. The spatial consequences of this financing were assessed by calculating the added construction, population growth, and traffic load in different districts of Tehran. Data collection was conducted through documentary and library methods, and the financial analysis was carried out using monetary–spatial equivalence techniques.
Findings
The results indicate that approximately 74% of Tehran Municipality’s revenues during the study period were unstable, with density-right sales comprising 85% of these revenues and, overall, 64% of total municipal income. Financing the Sadr project was primarily dependent on these revenues, amounting to 87,698 billion rials (at 2013 values). This strategy led to the construction of a large number of residential units outside the approved urban plans, resulting in an additional potential population of approximately 210,000 people and an estimated 143,000 private vehicles entering the city’s road network. Thus, the measure, initially intended to solve transportation problems, has paradoxically become a source of new spatial, demographic, and environmental challenges. Then, the approaches that can be basic solutions to the public transport flow are briefly mentioned.
Developing a metro network on the scale of inner-city areas and suburban train networks is among them. Rail transport projects, by obtaining a loan from the financial center and repaying it through the income generated from the operation of the rail transport network, can be a sustainable solution and do not create undesirable spatial consequences for the city. Developing a rail transport network largely controls urban sprawl. On the other hand, It enables desirable and controllable development and planning for the city and its surroundings, which is the continuation of the present research.
Conclusion
The case of the Sadr Elevated Expressway illustrates that reliance on unstable financial resources, particularly density-right sales, exacerbates spatial overloading and produces new urban problems. As an alternative, expanding public transport systems such as the metro, with financing methods based on loans and repayment through operational revenues, proves to be more effective and socially equitable. Moreover, funding road infrastructure through user-based charges, such as personal vehicle tolls, prevents the imposition of costs on all citizens and aligns better with social justice. Ultimately, conducting cost–benefit assessments before the implementation of megaprojects and considering their spatial consequences are indispensable requirements for metropolitan management.

کلیدواژه‌ها English

Financial Resources

Sadr Multi-level Highway

Spatial Consequences

Tehran

Urban Development Megaproject

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