都市圈空间结构演变的制度逻辑与启示:以东京都市圈为例
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摘要
都市圈的空间结构是如何演变的?支撑或影响其演变轨迹背后的制度逻辑又是什么?基于新制度主义理论视角,以东京都市圈为例,剖析了影响其空间结构变化的两个规划制度节点:由限制转向引导大城市发展,以及提升城市活力的中心区再开发制度。从案例分析中得出规划制度的变化过程并非线性的,而是不断试错、创新的过程,具有偶然性和不确定性;规划制度改变既是社会经济环境和观念改变等结构性因素影响结果,同时也是政府与社会、市场,以及政府内部各方博弈的能动作用结果。最后,从规划的制度观念、规则和行动三方面提出优化大城市规划编制和实施的政策建议
How does the spatial structure of a metropolitan areas evolve and what are the institutional factors underpinning such changes? This paper analyzes sociological and historical perspectives of changes in the spatial structure of the Tokyo metropolitan area under theories of new institutionalism. Two major policy adjustments are analyzed, namely the change from green-belt based growth control to transit-oriented growth management, and the deregulation of rigid zoning ordineances to promote urban regeneration in the central city. It concludes that the institutions change is not a liner process but rather takes place in an uncertain and incremental way that include continuous innovating and trial and error. Moreover, institutions changes are a result of interplays of different tiers of government, civil society and market players with diverse goals, strategies, and resources. Finally, it argues that the new round of comprehensive panning in China, as an ongoing institutional development,can be improved at three institutional levels: value, rule and action.
How does the spatial structure of a metropolitan areas evolve and what are the institutional factors underpinning such changes? This paper analyzes sociological and historical perspectives of changes in the spatial structure of the Tokyo metropolitan area under theories of new institutionalism. Two major policy adjustments are analyzed, namely the change from green-belt based growth control to transit-oriented growth management, and the deregulation of rigid zoning ordineances to promote urban regeneration in the central city. It concludes that the institutions change is not a liner process but rather takes place in an uncertain and incremental way that include continuous innovating and trial and error. Moreover, institutions changes are a result of interplays of different tiers of government, civil society and market players with diverse goals, strategies, and resources. Finally, it argues that the new round of comprehensive panning in China, as an ongoing institutional development,can be improved at three institutional levels: value, rule and action.
引文
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[17] LAI L W C. Neo-institutional economics and planning theory[J]. Planning Theory, 2005, 4(1):7-19.
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[21][日]日野正辉,刘云刚.1990年代以来日本大都市圈的结构变化[J].地理科学,2011, 31(03):302-308.(HINO Masateru,LIU Yun-Gang. Changes in spatial structure of Japanese metropolitan areas since 1990s[J]. Scientia Geographica Sinica. 2011, 31(3):302-308.)
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[24] SORENSEN A. Evolving property rights in Japan:patterns and logics of change[J]. Urban Studies, 2011, 48(3):471-91.
[25] SORENSEN A. Taking path dependence seriously:an historical institutionalist research agenda in planning history[J]. Planning Perspectives, 2015, 30(1):17-38.
[26]谭纵波.东京大城市圈的形成、问题与对策——对北京的启示[J].国外城市规划,2000(2):8-11.(TAN Zongbo. The formation,problems and its countermeasure of Tokyo megalopolis:a lesson to Beijing[J]. Urban Planning International, 2000(2):8-11.)
[27] TEITZ M B. Planning and the new institutionalisms[M)//VERMA N. Institutions and planning. Oxford:Elsevier, 2007:17-33.
[28] THELEN K. Historical institutionalism in comparative politics[J]. Annual Review of Political Science. 1999, 2, 369-404.
[29] WEBSTER C. The new institutional economics and the evolution of modem urban planning:insights, issues and lessons[J]. Town Planning Review, 2005, 76(4):455-484.
[30] WILLIAMSON E. Transaction-cost economics:the governance of contract relationship(J). Journal ofLaw and Economics, 1979, 22(2):233-261.
[31]吴启焰,崔功豪.南京市居住空间分异特征及其形成机制[J].城市规划,1999,23(12):23-35.(WU Qiyan, CUI Gonghao. The differential characteristics of residential space in Nanjing and its mechanism[J]. City Planning Review, 1999, 23(12):23-35.)
[32]习近平.京津冀协同发展工作汇报上的讲话[N/OL].2014-02-27[2017-6-28].http://politics. people. com. cn/n/2014/0227/c70731-24486624. html(XI Jingping.The Speech in Reporting Beijing-Tianjin-Hebei Collaborative Development[N/OL]. 2014-02-27[2017-6-28]. http://politics.people.com.cn/n/2014/0227/c70731-24486624. html)
[33]习近平.习近平谈治国理政[M].第二卷.北京:外文出版社,2017.(XI Jingping. The governance of China II[M]. Beijing:Foreign Languages Press, 2017.)
[34]张良,吕斌.日本首都圈规划的主要进程及其历史经验[J].城市发展研究,2009,(12):5-11.(ZHANG Liang, L(U|¨)Bing. The main course of Tokyo megalopolis planning and its revelation to China[J]. Urban Studies, 2009,(12):5-11.)
[35]周春山,胡锦灿,童新梅,等.广州市社会空间结构演变跟踪研究[J].地理学报,2016,71(6):1010-1024.(ZHOU Chunshan,HU Jincan, TONG Xinmei, et al. The sociospatial structure of Guangzhou and its evolution[J]. Acta Geographica Sinica, 2016. 71(6):1010-1024.)
[36]周江评,廖宇航.新制度主义和规划理论的结合——前沿研究及其讨论[J].城市规划学刊,2009(2):56-62.(ZHOU Jiangping, LIAO Yuhang. Reconciliation of the new institutionalism and planning theory:research fronts and a discussion on the research[J].Urban Planning Forum, 2009(2):56-62.)
[37]周敏,林凯旋,黄亚平.城市空间结构演变的动力机制——基于新制度经济学视角[J].现代城市研究,2014,(2):40-46.(ZHOU Min. LIN Kaixuan, HUANG Yaping. The dynamic mechanism of urban spatial structure evolution-a study from the perspective of new institutional economics[J]. Modem Urban Research.2014(2):40-46.)
[2] ALEXANDER E R. A transaction cost theory of planning[J]. Journal of the American Planning Association, 1992, 58(2):180-190.
[3] ALEXANDER E R. Governance and transaction costs in planning systems:a conceptual framework for institutional analysis of land-use planning and development control-the case of Israel[J]. Environment and Planning B:Planning and Design, 2001, 28(5):755-776.
[4]北京市人民政府.北京市城市总体规划(2016—2035年年[R], 2018. http://www.bjghw. gov. cn/web/ztgh/ztghOOO. html(Beijing Municipal Government. Beijing Master Plan(2016-2035)[R], 2018.)
[5][日]大西隆.逆都市化时代:人口减少时期的城市营造[M].东京:学艺出版社,2004.(ONISHI T. The age of deurbanization:urban planning facing declining population[M].Tokyo:Academic Publication, 2004.)
[6] DRYZEK J. Deliberative democracy and beyond[M]. Oxford:Oxford University Press,2000.
[7] FISCHER F. Reframing public policy:discursive politics and deliberative practice[M]. Oxford:Oxford University Press,2003.
[8] FUJII S, OKATAJ, SORENSEN. An innercity redevelopment in Tokyo:conflicts over urban place, planning governance, and neighborhoods[M]//SORENSEN A., FUNCK C. Living cities in Japan:citizens'movements,Machizukuri and local environments. London:Routledge, 2007:247-266.
[9] FUNG A, WRIGHT E. Deepening democracy:innovations in empowered participatory governance[J]. Politics and Society. 2001, 29(1):5-41.
[10] HALL P, TAYLOR R. Political science and the three institutionalism[J]. Political Studies,1996, 23(3):513-524.
[11] HEALEY P. Collaborative planning:shaping places in fragmented societies[M]. 2nd edition.Basingstoke:Macmillan Press, 2005.
[12] HEALY P. Institutionalist analysis, communicative planning, and shaping places[J]. Journal of Planning Education and Research, 1999, 19(2):111-121.
[13]何仲禹,等.业务核都市与东京都市圈空间结构优化[J].国际城市规划,2016, 31(1):46-52.(HE Zhongyu, et al. Gyomukakutoshi and spatial structure optimization of Tokyo metropolitan region[J]. Urban Planning International.2016, 31(1):46-52.)
[14] HIBBERT M, NAKAI N. Deregulation of Japanese planning in the Nakasone Era[J]. The Town Planning Review. 1988,59(4):383-395.
[15] INNES J E. Planning theory's emerging paradigm:communicative action and interactive practice[J]. Journal of Planning Education and Research, 1995, 14(3):183-189.
[16] KIM A. The evolution of the institutional approach in planning[M]//WEBER R. CRANE R. The Oxford handbook of urban planning.New York:Oxford University Press, 2012:68-86.
[17] LAI L W C. Neo-institutional economics and planning theory[J]. Planning Theory, 2005, 4(1):7-19.
[18] LUKES S. Power:a radical view[M]. Palgrave Macmillan, 1974.
[19] NORTH D C. Institutions, institutional change and economic performance[M]. New York:Cambridge University Press, 1990.
[20]日本总务省统计局.第六十六回日本统计年鉴[M].东京:日本总务省统计局,2017.(Statistics Bureau of Ministry of Internal Affair and Communication of Japan. Japan statistical yearbook 2017[M]. Tokyo:Japan Statistics, 2017.)
[21][日]日野正辉,刘云刚.1990年代以来日本大都市圈的结构变化[J].地理科学,2011, 31(03):302-308.(HINO Masateru,LIU Yun-Gang. Changes in spatial structure of Japanese metropolitan areas since 1990s[J]. Scientia Geographica Sinica. 2011, 31(3):302-308.)
[22]上海市人民政府.上海市城市总体规划(2017—2035年)[R].2018. http://www.shanghai.gov.cn/nw2/nw2314/nw32419/nw42806/nw42807/u21awt 280602.html Shanghai Municipal Government. Shanghai master plan(2017-2035)[R]. 2018.
[23][日]石田赖房.日本近现代都市计画的沿革(1868-2003)[M].东京:自治体研究社,2004.(ISHIDA Y. Urban planning history in modem Japan(1868—2003)[M]. Tokyo:Municipal Research Institute, 2004.)
[24] SORENSEN A. Evolving property rights in Japan:patterns and logics of change[J]. Urban Studies, 2011, 48(3):471-91.
[25] SORENSEN A. Taking path dependence seriously:an historical institutionalist research agenda in planning history[J]. Planning Perspectives, 2015, 30(1):17-38.
[26]谭纵波.东京大城市圈的形成、问题与对策——对北京的启示[J].国外城市规划,2000(2):8-11.(TAN Zongbo. The formation,problems and its countermeasure of Tokyo megalopolis:a lesson to Beijing[J]. Urban Planning International, 2000(2):8-11.)
[27] TEITZ M B. Planning and the new institutionalisms[M)//VERMA N. Institutions and planning. Oxford:Elsevier, 2007:17-33.
[28] THELEN K. Historical institutionalism in comparative politics[J]. Annual Review of Political Science. 1999, 2, 369-404.
[29] WEBSTER C. The new institutional economics and the evolution of modem urban planning:insights, issues and lessons[J]. Town Planning Review, 2005, 76(4):455-484.
[30] WILLIAMSON E. Transaction-cost economics:the governance of contract relationship(J). Journal ofLaw and Economics, 1979, 22(2):233-261.
[31]吴启焰,崔功豪.南京市居住空间分异特征及其形成机制[J].城市规划,1999,23(12):23-35.(WU Qiyan, CUI Gonghao. The differential characteristics of residential space in Nanjing and its mechanism[J]. City Planning Review, 1999, 23(12):23-35.)
[32]习近平.京津冀协同发展工作汇报上的讲话[N/OL].2014-02-27[2017-6-28].http://politics. people. com. cn/n/2014/0227/c70731-24486624. html(XI Jingping.The Speech in Reporting Beijing-Tianjin-Hebei Collaborative Development[N/OL]. 2014-02-27[2017-6-28]. http://politics.people.com.cn/n/2014/0227/c70731-24486624. html)
[33]习近平.习近平谈治国理政[M].第二卷.北京:外文出版社,2017.(XI Jingping. The governance of China II[M]. Beijing:Foreign Languages Press, 2017.)
[34]张良,吕斌.日本首都圈规划的主要进程及其历史经验[J].城市发展研究,2009,(12):5-11.(ZHANG Liang, L(U|¨)Bing. The main course of Tokyo megalopolis planning and its revelation to China[J]. Urban Studies, 2009,(12):5-11.)
[35]周春山,胡锦灿,童新梅,等.广州市社会空间结构演变跟踪研究[J].地理学报,2016,71(6):1010-1024.(ZHOU Chunshan,HU Jincan, TONG Xinmei, et al. The sociospatial structure of Guangzhou and its evolution[J]. Acta Geographica Sinica, 2016. 71(6):1010-1024.)
[36]周江评,廖宇航.新制度主义和规划理论的结合——前沿研究及其讨论[J].城市规划学刊,2009(2):56-62.(ZHOU Jiangping, LIAO Yuhang. Reconciliation of the new institutionalism and planning theory:research fronts and a discussion on the research[J].Urban Planning Forum, 2009(2):56-62.)
[37]周敏,林凯旋,黄亚平.城市空间结构演变的动力机制——基于新制度经济学视角[J].现代城市研究,2014,(2):40-46.(ZHOU Min. LIN Kaixuan, HUANG Yaping. The dynamic mechanism of urban spatial structure evolution-a study from the perspective of new institutional economics[J]. Modem Urban Research.2014(2):40-46.)