“到达丹麦”?:遭遇挑战的新区域主义——欧美大都市区的经验观察及反思
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摘要
20世纪后期全球快速城市化的进程中,新区域主义因强调治理过程、主张多主体跨域协作而广受追捧,成为欧美发达国家大都市流行的治理模式。然而,近20年以来的实践表明,当代新区域主义在组织结构、运作机制与治理能效层面遭遇了较为严峻的挑战:原有的权力结构被打破,而新的权力结构未能明确建立所导致的权力失衡与政治缺位;市场机制追求效率与利益而损害种族、空间公平;府际协作缺少规范,难以维系,问责与监督机制的缺失导致治理目标的偏失;统筹规划的缺乏导致发展方向不明,城市扩张加剧种族冲突,协同治理受限于各层次主体的能力与意愿,难以达成。基于经验性的观察和反思,要实现"到达丹麦"的善治目标,无论是对于西方发达城市,还是对于快速城市化进程中的中国而言,优化权力结构、完善合作机制、增强区域监管,由此打造更具活力和竞争力的治理形态,是未来可能且可行的路径选择。
In the process of rapid global urbanization in the late 20 th century, the new regionalism was widely sought after owing to its emphasis on the governance process and advocating on multi-subject cross-domain collaboration, and became a popular governance model in the developed countries of Europe and America. However, the practice in the past 20 years suggests that the contemporary new regionalism has encountered severe challenges in the aspects of organizational structure, operation mechanism and energy efficiency: the new power structure fails to establish clearly while the original power structure has been broken, which results in the power out-of-balance and political deficiency; market mechanism is undermining racial and spatial equity while pursuing efficiency and interests; governance objectives is distorted and collaboration is hard to maintain due to the lack of norms; the absence of overall planning leads to unclear development direction, urban expansion exacerbates ethnic conflicts, and collaborative governance is limited by the ability and willingness of the subjects at all levels. Based on empirical observation and reflection, in order to achieve the goal of good governance of "reaching Denmark", whether for the developed cities in the west or for China in the process of rapid urbanization, optimizing the power structure, perfecting the cooperation mechanism and strengthening the regional supervision, thus creating a more dynamic and competitive governance form, is a possible and feasible way in the future.
In the process of rapid global urbanization in the late 20 th century, the new regionalism was widely sought after owing to its emphasis on the governance process and advocating on multi-subject cross-domain collaboration, and became a popular governance model in the developed countries of Europe and America. However, the practice in the past 20 years suggests that the contemporary new regionalism has encountered severe challenges in the aspects of organizational structure, operation mechanism and energy efficiency: the new power structure fails to establish clearly while the original power structure has been broken, which results in the power out-of-balance and political deficiency; market mechanism is undermining racial and spatial equity while pursuing efficiency and interests; governance objectives is distorted and collaboration is hard to maintain due to the lack of norms; the absence of overall planning leads to unclear development direction, urban expansion exacerbates ethnic conflicts, and collaborative governance is limited by the ability and willingness of the subjects at all levels. Based on empirical observation and reflection, in order to achieve the goal of good governance of "reaching Denmark", whether for the developed cities in the west or for China in the process of rapid urbanization, optimizing the power structure, perfecting the cooperation mechanism and strengthening the regional supervision, thus creating a more dynamic and competitive governance form, is a possible and feasible way in the future.
引文
[1]戴维斯,英布罗肖.城市政治学理论前沿(第二版)[M].上海:格致出版社,2010:137- 145.
[2]叶林,新区域主义的兴起和发展[J].公共行政评论.2010(3):175- 190.
[3]SAVITCH H V,VOGEL R K,YE L.Beyond the rhetoric lessons from louisville's consolidation [J].American Review of Public Administration,2010(1):3- 28.
[4]马学广,李鲁奇.国外人文地理学尺度政治理论研究进展[J].人文地理,2016(148):6- 12.
[5]JESSOP B.The rise of governance and the risks of failure:The case of economic development [J].International Social Science Journal,1998,50(1):29- 45.
[6]KURTZ H E.Scale frames and counter-scale frames:Constructing the problem of environmental injustice [J].Political Geography,2003,22(8):887- 916.
[7]王佃利,杨妮.跨域治理在区域发展中的适用性及局限[J],南开学报哲学社会科学版,2014(2):106.
[8]SAVITCH H V,VOGEL R K.Suburb without a city:Power and city-county consolidation[J].Urban Affair Review,2004,139(6):758- 790.
[9]BLOMGUIST W,PARKS R B.Fiscal,service and political impacts of Indianapolis-Marion County's Unigov[J].The Journal of Federalism,1995,25(4):37- 54.
[10]宋迎昌.美国的大都市治理模式及其经验借鉴[J].国外规划研究,2004,28(5):87- 88.
[11]洪亮平,陶文铸.法国的大巴黎的计划及其启示[J].城市问题,2010(10):92.
[12]严涵,聂梦瑶,沈璐.大巴黎区域规划和空间治理研究[J].上海城市规划,2014(6):67.
[13]李利文,易承志.业主协会参与美国城市治理的实践及其对中国的启示[J].行政论坛,2016(133):98- 104.
[14]TAO J L,McCABE B C.Where a hollow state cast no shadow:Homeowner associations in local governments[J].American Review of Public Administration,2012,42(6):678- 694.
[15]生小刚,李婷,张锦云,艾晓峰.英国大伦敦市政府的组织机构及启示[J].国外规划研究,2006,21(3):24.
[16]FRANZESE P A.Does it take a village?Privatization,patterns of restrictiveness and the demise of community[J].Villanova Law Review,2002(47):553- 593.
[17]LERNER M.Why homeowners hate their HOAs.[EB/OL](2018- 10- 25) [2019- 1- 24].https://www.washingtonpost.com/business/2018/10/25/why-homeowners-hate-their-hoas/?noredirect=on&utm_term=.b092c3c3c780.
[18]琳达·麦卡锡,陈梦燚.美国和西欧巨型城市区区域合作对比研究[J].城市与区域规划研究,2009(3):121.
[19]德菲利皮斯.全球资本下的社区治理[M].上海:格致出版社,2017:23- 27.
[20]王旭,俞阅.近年来美国黑人的郊区化与居住区隔离[J].厦门大学学报哲学社会科学版,2004(2):65- 71.
[21]PAHL-WOSTL C,GUPTA J,PETRY D.Governance and the global water system:A theoretical exploration[J].Global Governance:A Review of Multilateralism and International Organizations,2008,14(4):419- 435.
[22] BREEN S,MINNES S,MARKEY S.Pragmatism versus potential:New regionalism and rural drinking water management[J].Journal of Rural and Community Development,2018,13(20):76- 99.
[23]PATRICK S,BROWN K.Greater Than the Sum of Its Parts?-Assessing “Whole of Government”Approaches to Fragile States[M].New York:International Peace Academy,2007:141.
[24]中华人民共和国国家发展和改革委员会.国家发展改革委关于培育发展现代化都市圈的指导意见(发改规划[2019]328号)[EB/OL](2019.5.22)http://www.ndrc.gov.cn/gzdt/201902/t20190221_928325.html.
(1)数据来源于《华盛顿邮报》:Why homeowners hate their HOAs.https://www.washingtonpost.com/business/2018/10/25/why-homeowners-hate-their-hoas/?noredirect=on&utm_term=.b092c3c3c780,2019年1月24日访问。
(2)资料来源:根据 Jason Chen:Homeowners Association-HOA,Amy Fontinelle:9 Things to Know About Homeowners Associations整理。https://www.investopedia.com/terms/h/hoa.asp,2019年2月2日访问。
(3)不具体指某个国家,代指理想化的治理状态。弗朗西斯·福山曾以此代之良好的国家治理。
[2]叶林,新区域主义的兴起和发展[J].公共行政评论.2010(3):175- 190.
[3]SAVITCH H V,VOGEL R K,YE L.Beyond the rhetoric lessons from louisville's consolidation [J].American Review of Public Administration,2010(1):3- 28.
[4]马学广,李鲁奇.国外人文地理学尺度政治理论研究进展[J].人文地理,2016(148):6- 12.
[5]JESSOP B.The rise of governance and the risks of failure:The case of economic development [J].International Social Science Journal,1998,50(1):29- 45.
[6]KURTZ H E.Scale frames and counter-scale frames:Constructing the problem of environmental injustice [J].Political Geography,2003,22(8):887- 916.
[7]王佃利,杨妮.跨域治理在区域发展中的适用性及局限[J],南开学报哲学社会科学版,2014(2):106.
[8]SAVITCH H V,VOGEL R K.Suburb without a city:Power and city-county consolidation[J].Urban Affair Review,2004,139(6):758- 790.
[9]BLOMGUIST W,PARKS R B.Fiscal,service and political impacts of Indianapolis-Marion County's Unigov[J].The Journal of Federalism,1995,25(4):37- 54.
[10]宋迎昌.美国的大都市治理模式及其经验借鉴[J].国外规划研究,2004,28(5):87- 88.
[11]洪亮平,陶文铸.法国的大巴黎的计划及其启示[J].城市问题,2010(10):92.
[12]严涵,聂梦瑶,沈璐.大巴黎区域规划和空间治理研究[J].上海城市规划,2014(6):67.
[13]李利文,易承志.业主协会参与美国城市治理的实践及其对中国的启示[J].行政论坛,2016(133):98- 104.
[14]TAO J L,McCABE B C.Where a hollow state cast no shadow:Homeowner associations in local governments[J].American Review of Public Administration,2012,42(6):678- 694.
[15]生小刚,李婷,张锦云,艾晓峰.英国大伦敦市政府的组织机构及启示[J].国外规划研究,2006,21(3):24.
[16]FRANZESE P A.Does it take a village?Privatization,patterns of restrictiveness and the demise of community[J].Villanova Law Review,2002(47):553- 593.
[17]LERNER M.Why homeowners hate their HOAs.[EB/OL](2018- 10- 25) [2019- 1- 24].https://www.washingtonpost.com/business/2018/10/25/why-homeowners-hate-their-hoas/?noredirect=on&utm_term=.b092c3c3c780.
[18]琳达·麦卡锡,陈梦燚.美国和西欧巨型城市区区域合作对比研究[J].城市与区域规划研究,2009(3):121.
[19]德菲利皮斯.全球资本下的社区治理[M].上海:格致出版社,2017:23- 27.
[20]王旭,俞阅.近年来美国黑人的郊区化与居住区隔离[J].厦门大学学报哲学社会科学版,2004(2):65- 71.
[21]PAHL-WOSTL C,GUPTA J,PETRY D.Governance and the global water system:A theoretical exploration[J].Global Governance:A Review of Multilateralism and International Organizations,2008,14(4):419- 435.
[22] BREEN S,MINNES S,MARKEY S.Pragmatism versus potential:New regionalism and rural drinking water management[J].Journal of Rural and Community Development,2018,13(20):76- 99.
[23]PATRICK S,BROWN K.Greater Than the Sum of Its Parts?-Assessing “Whole of Government”Approaches to Fragile States[M].New York:International Peace Academy,2007:141.
[24]中华人民共和国国家发展和改革委员会.国家发展改革委关于培育发展现代化都市圈的指导意见(发改规划[2019]328号)[EB/OL](2019.5.22)http://www.ndrc.gov.cn/gzdt/201902/t20190221_928325.html.
(1)数据来源于《华盛顿邮报》:Why homeowners hate their HOAs.https://www.washingtonpost.com/business/2018/10/25/why-homeowners-hate-their-hoas/?noredirect=on&utm_term=.b092c3c3c780,2019年1月24日访问。
(2)资料来源:根据 Jason Chen:Homeowners Association-HOA,Amy Fontinelle:9 Things to Know About Homeowners Associations整理。https://www.investopedia.com/terms/h/hoa.asp,2019年2月2日访问。
(3)不具体指某个国家,代指理想化的治理状态。弗朗西斯·福山曾以此代之良好的国家治理。
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