城市更新与治理变革

城市非正规性视角下东莞“三旧”改造的尺度政治:过程、机制与治理启示

  • 黄颖敏 , 1 ,
  • 黄耿志 2 ,
  • 薛德升 , 2 ,
  • 许吉黎 3
展开
  • 1.江西理工大学建筑与设计学院,赣州 341000
  • 2.中山大学地理科学与规划学院,广州 510006
  • 3.广东省科学院广州地理研究所,广州 510070
薛德升(1969- ),男,山西祁县人,博士,教授,博士生导师,研究方向为城市地理与城市规划。E-mail:

黄颖敏(1986- ),男,江西赣州人,博士,副教授,研究方向为城市非正规空间治理、城市更新。E-mail:

收稿日期: 2024-11-11

  修回日期: 2025-02-17

  网络出版日期: 2025-05-26

基金资助

国家自然科学基金项目(41901197)

教育部人文社会科学研究青年基金项目(24YJC790069)

江西省自然科学基金项目(20232BAB203063)

广东省基础与应用基础研究基金项目(2022A1515110969)

The scale politics in Dongguan's "Three Olds" redevelopment from the perspective of urban informality: Process, mechanisms, and governance implications

  • HUANG Ying-min , 1 ,
  • HUANG Geng-zhi 2 ,
  • XUE De-sheng , 2 ,
  • XU Ji-li 3
Expand
  • 1. School of Architecture and Design, Jiangxi University of Science and Technology, Ganzhou 341000, Jiangxi, China
  • 2. School of Geography and Planning, Sun Yat-sen University, Guangzhou 510006, China
  • 3. Guangzhou Institute of Geography, Guangdong Academy of Sciences, Guangzhou 510070, China

Received date: 2024-11-11

  Revised date: 2025-02-17

  Online published: 2025-05-26

摘要

城市非正规是快速发展中城市的普遍现象,“三旧”改造则是中国城市化后半期实现城市高质量发展的重要内容。针对当前学界对非正规用地进行“三旧”改造关注的不足,基于城市非正规性和尺度政治理论,选取东莞市“三旧”改造的典型案例,采用文献分析和深度访谈的质性研究方法,开展了其过程与机制研究。研究发现:东莞的“三旧”改造政策经历了政策申请、政策试点(含常态化)和政策修改三个阶段的尺度政治过程,伴随的是主要行动主体在此过程中“强势方”和“弱势方”角色的转变,以及改造地块“非正规—正规—非正规”状态的交互演变。“三旧”改造在实施过程中形成了各行动主体利益一致时顺利完成改造,以及利益不一致时地方政府重新修改政策,并对利益进行重新分配的两种路径,并以此循环,达到新的平衡的运行机制。研究有助于进一步丰富城市非正规性的理论进展,也为“三旧”改造和城市更新与治理提供一定的经验启示。

本文引用格式

黄颖敏 , 黄耿志 , 薛德升 , 许吉黎 . 城市非正规性视角下东莞“三旧”改造的尺度政治:过程、机制与治理启示[J]. 自然资源学报, 2025 , 40(6) : 1489 -1503 . DOI: 10.31497/zrzyxb.20250604

Abstract

Urban informality is a common phenomenon in rapidly developing cities, and the "Three Olds" redevelopment is an important aspect of achieving high-quality urban development in the later stages of urbanization in China. Addressing the current lack of academic attention to the redevelopment of informal land use in the context of the "Three Olds" initiative, this paper, based on the theories of urban informality and scalar politics, selects a typical case of "Three Olds" redevelopment in Dongguan city. Using qualitative research methods such as document analysis and in-depth interviews, this study explores the processes and mechanisms involved. The research finds that Dongguan's "Three Olds" redevelopment policy has undergone a scalar political process consisting of three stages: policy application, policy piloting (including normalization), and policy revision. This process is accompanied by a shift in the roles of the main actors from "dominant" to "subordinate" and vice versa, as well as the interactive evolution of the land parcels from "informal-formal-informal" states. During the implementation of the "Three Olds" redevelopment, two pathways emerge: one where the interests of all actors align, leading to smooth redevelopment, and the other where, in cases of conflicting interests, local governments revise policies and redistribute benefits. These pathways cycle to achieve a new equilibrium. The study contributes to further enriching the theoretical understanding of urban informality and provides practical insights for the "Three Olds" redevelopment and urban renewal and governance.

[1]
MCFARLANE C, WAIBEL M. Introduction:The informal-formal divide in context. In: MCFARLANE C, WAIBEL M. Urban Informalities: Reflections on the Formal and Informal. London: Ashgate, 2012: 1-12.

[2]
WIRTH L. Urbanism as a way of life. American Journal of Sociology, 1938, 44(1): 1-24.

[3]
ROY A, ALSAYYAD N. Urban Informality: Transnational Perspectives from the Middle East, Latin America, and South Asia. Berkeley: Lexington Books, 2004.

[4]
DEVLIN R. Informal urbanism in the USA: New challenges for theory and practice. Planning Theory & Practice, 2011, 12(1): 144-150.

[5]
UN-HABITAT. Planning Sustainable Cities:GLobal Report on Human Settlements, 2009. London: Earthscan, 2009.

[6]
WU F L. Theorising urban development in China: 'State entrepreneurialism' from the ground up. Dialogues in Human Geography, 2024, 14(3): 439-443.

[7]
黄宗智. 中国的非正规经济. 文化纵横, 2021, (6): 64-74.

[HUANG Z Z. The informal economy in China. Beijing Cultural Review, 2021, (6): 64-74.]

[8]
叶丹, 张京祥. 日常生活实践视角下的非正规空间生产研究: 以宁波市孔浦街区为例. 人文地理, 2015, 30(5): 57-64.

[YE D, ZHANG J X. Research on production of informal space from the perspective of practice of everyday life: A case study of kongpu district in Ningbo. Human Geography, 2015, 30(5): 57-64.]

[9]
陈明星, 黄莘绒, 黄耿志, 等. 新型城镇化与非正规就业: 规模、格局及社会融合. 地理科学进展, 2021, 40(1): 50-60.

DOI

[CHEN M X, HUANG X R, HUANG G Z, et al. New urbanization and informal employment: Scale, pattern, and social integration. Progress in Geography, 2021, 40(1): 50-60.]

DOI

[10]
邢祖哥, 黄耿志, 薛德升. 中国非正规经济发展格局及与城镇化的关系: 基于多指标多原因(MIMIC)模型的研究. 地理研究, 2022, 41(3): 597-615.

DOI

[XING Z G, HUANG G Z, XUE D S. Examining the development of informal economy and its relationship with the urbanization process in China using the MIMIC model. Geographical Research, 2022, 41(3): 597-615.]

[11]
JIN Y. Informalising formality: The construction of penghuqu in an urban redevelopment project in China. Housing Studies, 2023, 38(3): 463-483.

[12]
中华人民共和国自然资源部. 中国自然资源统计年鉴2023. 北京: 地质出版社, 2023.

[The Ministry of Natural Resources of China. China Natural Resources Statistical Yearbook 2023. Beijing: Geoscience Press, 2023.]

[13]
黄颖敏, 薛德升, 黄耿志. 改革开放以来珠江三角洲基层非正规土地利用实践与制度创新: 以东莞市长安镇为例. 地理科学, 2017, 37(12): 1831-1840.

DOI

[HUANG Y M, XUE D S, HUANG G Z. The local informal land practice and institutional innovation in the Pearl River Delta since 1978: A case study of Chang'an town in Dongguan city. Scientia Geographica Sinica, 2017, 37(12): 1831-1840.]

[14]
YANG C. Restructuring the export-oriented industrialization in the Pearl River Delta, China: Institutional evolution and emerging tension. Applied Geography, 2012, 32(1): 143-157.

[15]
XUE D S, WU F L. Failing entrepreneurial governance: From economic crisis to fiscal crisis in the city of Dongguan, China. Cities, 2015, 43: 10-17.

[16]
广东省人民政府.关于推进“三旧”改造促进节约集约用地的若干意见(粤府〔2009〕78号). http://www.qb.gd.gov.cn/zcfg/content/post_46753.html, 2009.

[Guangdong Provincial People's Government. Some opinions on promoting the "Three old" transformation to promote economical and intensive land use (Guangdong Provincial People's Government [2009]78, http://www.qb.gd.gov.cn/zcfg/content/post_46753.html, 2009.]

[17]
严若谷, 周素红, 闫小培. 城市更新之研究. 地理科学进展, 2011, 30(8): 947-955.

[YAN R G, ZHOU S H, YAN X P. Studies of urban regeneration. Progress in Geography, 2011, 30(8): 947-955.]

DOI

[18]
董玛力, 陈田, 王丽艳. 西方城市更新发展历程和政策演变. 人文地理, 2009, 24(5): 42-46.

[DONG M L, CHEN T, WANG L Y. Development course and policy evolution of urban renewal in western cities. Human Geography, 2009, 24(5): 42-46.]

[19]
HENDERSON S, BOWLBY S, RACO M. Refashioning local government and inner-city regeneration: The Salford experience. Urban Studies, 2007, 44(8): 1441-1463.

[20]
FLORIDA R. The Rise of the Creative Class:And How It's Transforming Work, Leisure, Community and Everyday Life. New York: Basic Books, 2002.

[21]
COUCH C, SYKES O, BÖRSTINGHAUS W. Thirty years of urban regeneration in Britain, Germany and France: The importance of context and path dependency. Progress in Planning, 2011, 75(1): 1-52.

[22]
赵亚博, 臧鹏, 朱雪梅. 国内外城市更新研究的最新进展. 城市发展研究, 2019, 26(10): 42-48.

[ZHAO Y B, ZANG P, ZHU X M. Latest developments in urban renewal research at domestic and abroad. Urban Development Studies, 2019, 26(10): 42-48.]

[23]
付迎春, 郭碧云, 王敏, 等. 社会—生态系统适应性治理视角下绿地空间恢复力的演化: 广州旧城区更新案例. 自然资源学报, 2022, 37(8): 2118-2136.

DOI

[FU Y C, GUO B Y, WANG M, et al. Spatial resilience evolution of green space from the perspective of social-ecological system adaptive governance: A case study for urban renewal in Guangzhou, China. Journal of Natural Resources, 2022, 37(8): 2118-2136.]

[24]
宋伟轩, 袁亚琦, 谷跃, 等. 南京棚户区改造的城市社会空间重构效应. 地理研究, 2021, 40(4): 1008-1024.

DOI

[SONG W X, YUAN Y Q, GU Y, et al. Socio-spatial effects of urban shantytown renovation in Nanjing. Geographical Research, 2021, 40(4): 1008-1024.]

[25]
EVANS G. Measure for measure: Evaluating the evidence of culture's contribution to regeneration. Urban Studies, 2005, 42(5-6): 959-983.

[26]
刘小琼, 何丽娜, 陈恁宇, 等. 基于体育文化项目的土地再开发: 德国多特蒙德旧工业区更新研究. 自然资源学报, 2025, 40(1): 181-194.

DOI

[LIU X Q, HE L N, CHEN N Y, et al. Land redevelopment based on sports and cultural projects: A study on the regeneration of old industrial areas in Dortmund, Germany. Journal of Natural Resources, 2025, 40(1): 181-194.]

[27]
李欣, 高煜, 冯淑怡, 等. 尺度重构视域下城市历史地段更新改造的实现机制研究: 基于南京小西湖的实证. 自然资源学报, 2025, 40(1): 104-117.

DOI

[LI X, GAO Y, FENG S Y, et al. Rescaling and the regeneration of the urban historical district: A case study of Xiaoxihu, Nanjing. Journal of Natural Resources, 2025, 40(1): 104-117.]

[28]
郭炎, 王涵, 张正菲. 老旧小区非正规空间的形成机制和更新治理模式研究: 以武汉市为例. 城市规划学刊, 2023, (5): 103-109.

[GUO Y, WANG H, ZHANG Z F. The formation mechanism and governance models of renewing informal spaces in dilapidated neighborhoods: A case study of Wuhan city. Urban Planning Forum, 2023, (5): 103-109.]

[29]
项振海, 郭炎, 袁奇峰, 等. 广东省“三旧”改造研究进展. 上海城市规划, 2018, (4): 68-73.

[XIANG Z H, GUO Y, YUAN Q F, et al. Research progress of "Three Old" transformation in Guangdong province. Shanghai Urban Planning Review, 2018, (4): 68-73.]

[30]
GUO Y, XIAO Y, YUAN Q F. The redevelopment of peri-urban villages in the context of path-dependent land institution change and its impact on Chinese inclusive urbanization: The case of Nanhai, China. Cities, 2017, 60: 466-475.

[31]
LI B, LIU C Q. Emerging selective regimes in a fragmented authoritarian environment: The 'Three Old Redevelopment' policy in Guangzhou, China from 2009 to 2014. Urban Studies, 2018, 55(7): 1400-1419.

[32]
郭晓丽, 冯淑怡, 吕沛璐, 等. 建设用地节约集约利用的制度创新和理论解释: 以广东省佛山市“三旧” 改造为例. 资源科学, 2014, 36(8): 1554-1562.

[GUO X L, FENG S Y, LYU P L, et al. The economical and intensive use of construction land: A case study on old town, old village and old factory transformation in Foshan. Resources Science, 2014, 36(8): 1554-1562.]

[33]
LIU Z, HUANG Z J, YIN Z H, et al. Urban regeneration under national land use control: Guangdong's "Three-Old" redevelopment programme. The China Quarterly, 2024, 258: 441-456.

[34]
HART K. Informal income opportunities and urban employment in Ghana. The Journal of Modern African Studies, 1973, 11(1): 61-89.

[35]
RADO E. Employment, incomes and equality. A strategy for increasing productive employment in Kenya. The Economic Journal, 1973, 83(331): 969-971.

[36]
PERLMAN J E. The metamorphosis of marginality: Four generations in the favelas of Rio de Janeiro. The ANNALS of the American Academy of Political and Social Science, 2006, 606(1): 154-177.

[37]
CASTELLS M, PORTES A. World underneath:The origins, dynamics, and effects of the informal economy. In: BENTON L, et al (eds). The Informal Economy, 11-40. Baltimore, MD: Johns Hopkins University Press, 1989.

[38]
DE SOTO H. The Mystery of Capital:Why Capitalism Triumphs in the West and Fails Everywhere Else. New York: Basic Books, 2003.

[39]
MCFARLANE C, WAIBEL M. (Eds.): Reflections on the formal and informal. In: ALTROCK U. Conceptualizing Informality:Some Thoughts on the Way towards Generalization, London: Ashgate, 2012: 171-193.

[40]
ROY A. Urban informality: Toward an epistemology of planning. Journal of the American Planning Association, 2005, 71(2): 147-158.

[41]
TAYLOR P J. A materialist framework for political geography. Transactions of the Institute of British Geographers, 1982, 7(1): 15-34.

[42]
SMITH N. Geography, Difference and the Politics of Scale. Postmodernism and the Social Sciences. London: Palgrave Macmillan UK, 1992: 57-79.

[43]
刘云刚, 王丰龙. 尺度的人文地理内涵与尺度政治: 基于1980年代以来英语圈人文地理学的尺度研究. 人文地理, 2011, 26(3): 1-6.

[LIU Y G, WANG F L. Concept of scale in human geography and politics of scale: Based on Anglophone Human Geography Since 1980s. Human Geography, 2011, 26(3): 1-6.]

[44]
王丰龙, 刘云刚. 尺度政治理论框架. 地理科学进展, 2017, 36(12): 1500-1509.

DOI

[WANG F L, LIU Y G. Towards a theoretical framework of 'politics of scale'. Progress in Geography, 2017, 36(12): 1500-1509.]

DOI

[45]
刘云刚, 王丰龙. 三鹿奶粉事件的尺度政治分析. 地理学报, 2011, 66(10): 1368-1378.

[LIU Y G, WANG F L. Politics of scale in "sanlu-milkpowder scandal". Acta Geographica Sinica, 2011, 66(10): 1368-1378.]

DOI

[46]
王丰龙, 刘云刚. 中国行政区划调整的尺度政治. 地理学报, 2019, 74(10): 2136-2146.

DOI

[WANG F L, LIU Y G. "Politics of scale" in Chinese administrative division adjustment. Acta Geographica Sinica, 2019, 74(10): 2136-2146.]

DOI

[47]
侯璐璐, 刘云刚. 公共设施选址的邻避效应及其公众参与模式研究: 以广州市番禺区垃圾焚烧厂选址事件为例. 城市规划学刊, 2014, (5): 112-118.

[HOU L L, LIU Y G. NIMBY effect in public facilities planning and ways of citizen participation: A case study on the siting of Panyu incineration plant. Urban Planning Forum, 2014, (5): 112-118.]

[48]
黄颖敏, 李晴, 廖望, 等. 尺度政治视角下传统村落祠堂功能演变与动力机制: 以江西唐江卢氏宗祠为例. 南方建筑, 2024, (1): 38-47.

[HUANG Y M, LI Q, LIAO W, et al. Functional evolution and dynamic mechanism of ancestral halls in traditional villages from the perspective of politics of scale: A case study of Lu's ancestral hall in Tangjiang, Jiangxi. South Architecture, 2024, (1): 38-47.]

[49]
胡洲伟, 李志刚, 李丽. 基于尺度重构视角的老旧小区长效运营机制研究: 对武汉市“物业城市”模式的实证. 自然资源学报, 2025, 40(1): 134-146.

DOI

[HU Z W, LI Z G, LI L. A study of old and dilapidated communities operation from the perspective of spatial rescaling: A case of 'Property City' governance in Tangjiadun subdistrict, Wuhan. Journal of Natural Resources, 2025, 40(1): 134-146.]

文章导航

/