多中心治理视角下中国老旧社区微更新多方共治机制研究——以南京市秦淮区为例
Multi-party co-governance mechanism of micro-renewal in China's old communities from the perspective of polycentric governance: A case study of Qinhuai district in Nanjing
在中国城市存量更新背景下,实施老旧社区微更新对城市高质量发展和国家治理能力现代化具有重要战略意义。通过开展对多中心治理理论的本土化探索,以中国语境下的多中心治理为分析视角,选取南京市秦淮区重点微更新项目为研究对象,探索了当前中国老旧社区微更新的多方共治机制。研究发现:多方共治机制是由区政府、国资企业、规划团队、社区基层组织和居民等多元主体共同参与的更新协作机制,其中政府的角色转换和对社会力量的有效整合是多方共治机制构成的关键;多元主体的互动关系随着更新阶段的推进不断发生变化;建立多元主体能够有效交流和理性互动的平台是推动老旧社区微更新持续发展的关键;微更新可以为老旧社区物质空间、社会空间、经济发展、历史资源创造持续的生产效益。
In the context of China's urban stock renewal, the implementation of micro-renewal in old communities is of strategic importance for the high-quality development of cities and the modernisation of the country's governance capacity. In the context of China's urban stock renewal, the implementation of micro-regeneration in old communities is of strategic importance for the high-quality development of cities and the modernisation of national governance capacity. By exploring the localisation of polycentric governance theory, this paper analyses polycentric governance in the Chinese context, and selects a key micro-renewal project in Qinhuai district, Nanjing as the research object, to explore the multi-party governance mechanism of micro-regeneration in China's aging communities. The study finds that the multi-party governance mechanism is a collaborative renewal mechanism in which multiple actors, including the district government, district state-owned enterprises, planning teams, community grassroots organisations, and residents, participate in a clear division of roles and networked interactions in order to respect residents' property rights and wishes. Among them, the transformation of the government's decentralised role and the effective integration of social forces are the key factors contributing to the construction of the mechanism of multi-party co-regulation; the interactive relationship of the multiple subjects changes continuously with the advancement of the renewal stage; and the establishment of a platform for effective communication and rational interaction among the various subjects is the key to promoting the sustainable development of micro-renewal of the old community, which is currently still in the mode of an external impetus. At present, community micro-renewal in Qinhuai district is still in a mode of external driving force; micro-renewal can create sustainable production benefits for the physical space, social space, economic development, and historical resources of the old community.
多中心治理理论 / 微更新 / 多方共治机制 / 老旧社区 {{custom_keyword}} /
polycentric governance theory / micro-renewal / multi-party co-governance mechanism / old communities {{custom_keyword}} /
表1 秦淮区微更新实践案例基本信息Table 1 Basic information of micro-renewal practice cases in Qinhuai district |
更新区域 | 占地面积/hm2 | 总户数/户 | 规划管控单元/个 | 一般不可移动文物/处 | 历史建筑/处 | 项目起始年份 |
---|---|---|---|---|---|---|
小西湖片区 | 4.69 | 810 | 15 | 2 | 7 | 2015 |
小松涛巷 | 1.01 | 237 | 16 | 1 | 4 | 2020 |
荷花塘片区 | 12.56 | 1805 | 36 | 9 | 8 | 2022 |
表2 多元主体在微更新实践中的角色分析Table 2 Analysis of the roles of multiple subjects in micro-renewal practices |
主体 | 角色 | 定位 | 职能 | 需求 |
---|---|---|---|---|
政府 | 主导者 | 主导决策 | 提供政府服务、整合社会资源 | 改善民生、保护历史文脉 |
历保集团 | 产权经纪人 | 枢纽核心 | 投入资金、产权调研、改造建设、管理运营 | 获取综合收益 |
规划团队 | 智囊团 | 技术主体 | 了解居民需求、设计规划方案、 优化方案 | 改良社区现状、协调城市空间 |
街道社区 | 协助者 | 基层治理主体 | 宣传更新政策、收集居民需求、组织协调 | 增强社区凝聚力、保障居民 权益 |
居民 | 监督者 | 治理主体 | 表达需求、投入资金、监督反馈 | 改善居住环境、提高生活品质 |
[1] |
王玉龙, 安百杰. 城市更新中的社会组织与空间权力平衡: 基于美国核桃街历史街区改造的研究. 东岳论丛, 2021, 42(5): 88-96.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[2] |
顾大治, 瞿嘉琳, 黄丽敏, 等. 基于多元共治平台的社区微更新机制优化探索. 现代城市研究, 2020, 35(2): 2-8.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[3] |
张侠, 赵德义, 朱晓东, 等. 城中村改造中的利益关系分析与应对. 经济地理, 2006, 26(3): 496-499.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[4] |
何冬华, 高慧智, 刘玉亭, 等. 土地再资本化视角下城市更新的治理过程与干预: 对广州旧村改造实施的观察. 城市发展研究, 2022, 29(1): 95-103.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[5] |
张磊. “新常态”下城市更新治理模式比较与转型路径. 城市发展研究, 2015, 22(12): 57-62.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[6] |
王桢桢. 城市更新治理模式的比较与选择. 城市观察, 2010, (3): 123-130.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[7] |
郭旭, 田莉. “自上而下”还是“多元合作”: 存量建设用地改造的空间治理模式比较. 城市规划学刊, 2018, (1): 66-72.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[8] |
张俊. 城市更新中的社区参与与协同治理. 上海城市管理, 2021, 30(2): 43-51.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[9] |
何深静, 刘玉亭. 房地产开发导向的城市更新: 我国现行城市再发展的认识和思考. 人文地理, 2008, 23(4): 6-11.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[10] |
张京祥, 胡毅. 基于社会空间正义的转型期中国城市更新批判. 规划师, 2012, 28(12): 5-9.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[11] |
彭恺. 新马克思主义视角下我国治理型城市更新模式: 空间利益主体角色及合作伙伴关系重构. 规划师, 2018, 34(6): 5-11.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[12] |
杨晓辉, 丁金华. 利益博弈视角下的城市土地再开发与规划调控策略. 规划师, 2013, 29(7): 85-89, 100.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[13] |
姜克芳, 张京祥. 城市工业园区存量更新中的利益博弈与治理创新: 深圳、常州高新区两种模式的比较?. 上海城市规划, 2016, (2): 8-14.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[14] |
陈浩, 张京祥, 吴启焰. 转型期城市空间再开发中非均衡博弈的透视: 政治经济学的视角. 城市规划学刊, 2010, (5): 33-40.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[15] |
李画儿, 黎斌, 刘青, 等. 协调博弈视角下深圳市城中村改造模式的逻辑演替. 城市问题, 2021, (8): 55-62.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[16] |
邓毛颖, 邓策方. 利益统筹视角下的城市更新实施路径: 以广州城中村改造为例. 热带地理, 2021, 41(4): 760-768.
存量建设土地再开发过程中对增值利益的合理分配是推动城市更新实施的关键,而多方参与主体为此进行的复杂利益博弈,则是城市更新工作的阻力。鉴于此,以广州城中村改造为例,基于利益主体博弈视角,分析城市更新政策演进中利益分配格局的转变,并从价值导向、权益认定和管理体系三方面阐释影响城市更新主体利益平衡难、博弈周期长的难点,进而从促进存量时代城市更新实施的目标出发,结合改造方案编制的技术要点、审批流程与制度设计,从“公共优先、权益共享、一体化实施”3个方面提出了利益统筹的对策,以及引导价值转变,到合理认定权益,并通过管理体系统筹利益分配的实施路径,以加快城市更新共识的达成,实现存量土地价值盘活。
[
During the processes of stock land redevelopment, appropriate profit allocation is key to promoting the implementation of urban renewal. Meanwhile, its intricate, multi-participant interest games tends to obstruct the progress of urban renewal programs. Many scholars have studied the various types of interest conflicts among different stakeholders, their game models, and cooperation patterns of urban renewal. However, studies on how to effectively coordinate the diverse demands of multiple stakeholders and solve the problems of profit allocation management derived from the land value increments in different urban renewal stages are insufficient. By reviewing the development of Guangzhou urban renewal policies and their impact on the profit allocation pattern in practices during the past decades, this study clarifies the intrinsic interrelationships among the interests of local governments, investors, and original owners in urban renewal, as they struggle to maximize their benefit. Using Guangzhou urban village redevelopment as an example, this study summarizes the interest concerns and difficulties in urban renewal implementation in terms of value orientation, identification of rights and interests, and management system. Simultaneously, it proposes an innovated urban renewal implementation path of interest coordination based on public priority, profit sharing, co-planning, and co-management. In the coming reserve planning era, to progress urban renewal programs, not only the financial balance but also other comprehensive impact factors should be well-considered. Further studies on multi-dimension and whole-process implementation path of urban renewal in the field of interest coordination could make the planning decisions and working scheme more feasible, which promote urban regeneration. {{custom_citation.content}}
{{custom_citation.annotation}}
|
[17] |
冯树磊. 从“增长逻辑”到“共治体制”: 城市更新的场域变革. 城市发展研究, 2023, 30(5): 80-85.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[18] |
胡航军, 张京祥. 基于集体行动理论的城市更新困境解析与治理路径. 城市发展研究, 2022, 29(10): 22-30.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[19] |
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[20] |
王玉洁, 张京祥, 王雨. 行动者网络视角下渐进式更新协作机制研究: 以江苏省南京小西湖地段更新为例. 上海城市规划, 2022, (1): 110-119.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[21] |
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[22] |
洪文迁, 李峰. 公众参与城市规划初探: 旧城更新中的居民参与. 福建建筑, 2004, (1): 16-18.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[23] |
程嘉梵, 陈明星. 英国机遇区规划对中国国土空间规划的启示. 自然资源学报, 2022, 37(11): 3019-3032.
随着中国城镇化步入中后期发展阶段,以及空间规划改革与高质量发展的时代背景下,城市更新是存量时代城市空间可持续发展的关键议题。但目前还存在着城市更新在国土空间规划体系中定位不清晰等问题,如何更好地推动新时代国土空间规划衔接和融入城市更新,作为解决城市病、进行城市空间治理的有效手段亟待探索。简要梳理城市更新研究进展,以英国伦敦的大型城市更新规划—机遇区规划作为典型案例,分析机遇区规划的概念内涵、演变过程及不同类型,重点解析以金融和创新产业为重点的商业发展型、以维护和延续历史风貌为重点的文化旅游型、以棕地修复和发展绿色产业为重点的工业发展型等三种具有代表性典型机遇区规划项目。在此基础上,提出英国伦敦机遇区更新规划对中国国土空间规划的启示:在五级三类国土空间规划体系中明确城市更新的定位及编制要求与标准;以城市更新为抓手,促进城市存量空间人居环境质量与社会公平和谐;对不同类型城市以及城市不同类型地块,均需因地制宜地构建差异化的城市更新策略;借鉴基于自然的解决方案,尊重城市区域的自然资源本底和地理属性特征;延续城市历史文脉,挖掘打造地方性、有特色的城市精神。
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[24] |
赵波. 多元共治的社区微更新: 基于浦东新区缤纷社区建设的实证研究. 上海城市规划, 2018, (4): 37-42.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[25] |
秦静. 责任规划师工作的“片区管理型”与“社区治理型”模式的适应性研究. 规划师, 2022, 38(12): 13-19.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[26] |
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[27] |
许宝君. 我国城市社区治理结构转换路径及发展趋向. 求实, 2021, (5): 58-71, 111.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[28] |
周敏, 林凯旋, 王勇. 基于全链条治理的国土空间规划传导体系及路径. 自然资源学报, 2022, 37(8): 1975-1987.
国土空间规划传导应是覆盖规划编制、实施管理、监督反馈各个环节的全过程传导。基于国土空间治理体系和治理能力现代化的三个“需求面”,剖析传统空间规划传导的“不适应性”,并从全尺度、全过程、多向度的全链条治理逻辑出发,构建与新时期国土空间治理需求与规划体系相匹配的“三链协同”传导体系及“空间链”“时间链”“反馈链”传导路径。即覆盖“编制—实施—监督”多环节、全过程的国土空间治理闭环体系;纵向到底、事权清晰的全尺度空间传导链条,横向到边、面向实施的全过程时间传导链条以及多元共治、动态维护的多向度反馈传导链条;以期为国土空间规划传导实施提供理论与实践借鉴。
[
The transmission of territorial spatial planning should cover all process of planning, implementation and supervision. Based on the three "needs" of modernization of territorial spatial governance, the paper analyzed the inadaptability of traditional spatial planning conduction. Starting from the whole chain governance logic of full-scale, whole-process and multiple dimensions, the paper constructed a transmission system of "three-chain coordination" and three paths of "spatial chain", "time chain" and "feedback chain" matching the territorial spatial planning needs and system in the new era, which include a closed-loop system for territorial spatial governance that covers the whole process of planning, implementation and supervision, a full-scale spatial transmission chain with clear authority from top to bottom, a full-process time transmission chain from core to edge oriented to implementation and a multi-dimensional feedback transmission chain with multiple co-governance and dynamic maintenance, in order to provide theoretical and practical reference for the transmission of territorial spatial planning. {{custom_citation.content}}
{{custom_citation.annotation}}
|
[29] |
张文华, 宋婷, 秦小峰. 城市社区微治理中多元主体协同的博弈困境与女性参与. 中华女子学院学报, 2023, 35(5): 83-89.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[30] |
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[31] |
王志刚. 多中心治理理论的起源、发展与演变. 东南大学学报: 哲学社会科学版, 2009, 11(s2): 35-37.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[32] |
李平原, 刘海潮. 探析奥斯特罗姆的多中心治理理论: 从政府、市场、社会多元共治的视角. 甘肃理论学刊, 2014, (3): 127-130.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[33] |
李明强, 王一方. 多中心治理: 内涵、逻辑和结构. 中共四川省委省级机关党校学报, 2013, (6): 86-90.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[34] |
陈艳敏. 多中心治理理论: 一种公共事物自主治理的制度理论. 新疆社科论坛, 2007, (3): 35-38.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[35] |
王飏. 奥氏多中心理论及实践分析. 北京交通大学学报: 社会科学版, 2010, 9(4): 90-94.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[36] |
谭禹. 多中心治理理论与保障性住房的多元供给. 城市问题, 2012, (12): 63-67.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[37] |
李力东, 钟冬生. 多中心治理视角下和谐劳动关系的构建: 以浙江温岭行业工资集体协商为例. 晋阳学刊, 2014, (5): 75-81.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[38] |
张俊哲, 梁晓庆. 多中心理论视阈下农村环境污染的有效治理. 理论探讨, 2012, (4): 164-167.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[39] |
谢治菊, 朱绍豪. 多中心治理理论视角下研究生教育质量保障机制探讨. 现代教育管理, 2017, (4): 102-107.
多中心治理理论强调治理主体的多元化及平等参与,强调自主治理与自主组织,与现阶段我国研究生教育质量保障机制的构建思路有重要的契合,此契合为开展研究生质量保障实证调查提供了理论支撑。调查发现,研究生质量保障出现了错位的“中心—边缘”结构,本应发挥核心作用的培养单位和研究生本人积极性和主动性不高,本应起指导作用的政府对培养过程干预较多、管控过严。为矫正这一错位的结构,应激发研究生自身的学习热情,对研究生培养单位充分赋权;应营造良好的育人氛围,保证各保障主体的平等地位;应强化社会监督,建立各保障机制的冲突协调机制。
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[40] |
孔繁斌. 公共性的再生产:多中心治理的合作机制建构. 南京: 凤凰出版传媒集团, 2008.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[41] |
郑容坤. 水资源多中心治理机制的构建: 以河长制为例. 领导科学, 2018, (8): 42-45.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[42] |
林靖, 汪华, 杨柳. 构建共建共治共享的社会治理共同体研究: 以南京市秦淮区为例. 唯实, 2021, (1): 70-74.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[43] |
蔡兴宣, 童本勤. 南京市朝天宫街道城市更新路径探索: 以石榴新村片区为例. 城市建筑, 2023, 20(18): 45-48.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[44] |
董亦楠, 韩冬青, 沈旸, 等. 适于传统街区保护再生的“类型学地图”绘制与应用: 以南京小西湖为例. 建筑学报, 2019, (2): 81-87.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[45] |
周详, 郝思远, 马雨琪, 等. 城市治理转型背景下街校合作型社区微更新机制研究. 现代城市研究, 2023, 38(3): 1-6.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[46] |
葛天任, 李强. 从“增长联盟”到“公平治理”: 城市空间治理转型的国家视角. 城市规划学刊, 2022, (1): 81-88.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[47] |
叶林, 周寒. 超越增长逻辑: 城市治理的多重情境与转向. 华南师范大学学报: 社会科学版, 2021, (3): 101-112, 207.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[48] |
武敏, 彭小雷, 叶成康, 等. 国家治理视角下我国新城新区发展历程研究. 城市规划学刊, 2020, (6): 57-64.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[49] |
刘迪, 唐婧娴, 赵宪峰, 等. 发达国家城市更新体系的比较研究及对我国的启示: 以法德日英美五国为例. 国际城市规划, 2021, 36(3): 50-58.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[50] |
阳建强, 陈月. 1949—2019年中国城市更新的发展与回顾. 城市规划, 2020, 44(2): 9-19, 31.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[51] |
赵万民, 李震, 李云燕. 当代中国城市更新研究评述与展望: 暨制度供给与产权挑战的协同思考. 城市规划学刊, 2021, (5): 92-100.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[52] |
{{custom_citation.content}}
{{custom_citation.annotation}}
|
[53] |
高煜, 张京祥. 澳大利亚“先验”规划评估的理性、实践及其借鉴: 以悉尼市为例. 国际城市规划, 2022, 37(3): 128-135.
[
{{custom_citation.content}}
{{custom_citation.annotation}}
|
{{custom_ref.label}} |
{{custom_citation.content}}
{{custom_citation.annotation}}
|
/
〈 |
|
〉 |