从被动衰退到精明收缩——论特大城市郊区小城镇的“收缩型规划”转型趋势及路径
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摘要
城市人口的增长与衰减均是城市经济社会发展不同阶段下的产物。西方国家较早面临了城市收缩的现实,并形成了各自的理念转变与规划应对。我国仍处于快速城镇化阶段,但也出现了城市收缩的现象,特别是在我国中西部人口流出地区。然而在上海这一特大城市的郊区小城镇也面临着人口收缩、经济滞缓为特征的收缩困境。本文以上海市郊的合庆镇为例,分析了在过去增长路径的依赖下,显现出的"被动衰退"趋势。城镇当下的发展已出现了收缩的内外部驱动机制,内部机制表现在本地农民的脱农化程度高以及较强的城镇聚居意愿,外部驱动表现在环境的负外部性对本地农民的挤出作用和宏观政策导向。为实现收缩情景下的精明发展,合庆镇急需对镇村体系进行精明重构,产业区进行瘦身转型,并相应调整镇域空间布局,使其在收缩、有限的空间范围内保持良性增长,提升城镇发展品质。
The growth and shrinkage of urban population are both outcomes of socio-economic development at the different stages. Shrinking city is a general phenomenon in Western countries, which facilitates the shift of planning ideas and relevant practice reaction. Phenomenon of shrinking can also be found in urbanizing China, especially in some population flow-out areas in the central and western regions. However, some remote suburban towns of Shanghai are also facing the problem of shrinking population and slowdown economy. This paper takes Heqing Town as a case to analyze the trend of "passive recession" under the circumstances of path reliance on growth. The urban development at present has shown the internal and external mechanisms for urban shrinkage. The internal mechanism is reflected by local farmers' strong willingness to leave countryside and live in urban area, and the external mechanisms is shown by the negative externality, which generates an exclusion effect to local farmers, and the guidance by other macro policies. In order to realize a smart development under the circumstances of shrinking, Heqing Town has to adopt some countermeasures, including restructuring the town and village system in a smart way and downsizing the industrial zones; correspondingly, the spatial layout of the town needs to be adjusted so as to maintain a healthy and sustainable growth in the limited space and enhance the development quality.
The growth and shrinkage of urban population are both outcomes of socio-economic development at the different stages. Shrinking city is a general phenomenon in Western countries, which facilitates the shift of planning ideas and relevant practice reaction. Phenomenon of shrinking can also be found in urbanizing China, especially in some population flow-out areas in the central and western regions. However, some remote suburban towns of Shanghai are also facing the problem of shrinking population and slowdown economy. This paper takes Heqing Town as a case to analyze the trend of "passive recession" under the circumstances of path reliance on growth. The urban development at present has shown the internal and external mechanisms for urban shrinkage. The internal mechanism is reflected by local farmers' strong willingness to leave countryside and live in urban area, and the external mechanisms is shown by the negative externality, which generates an exclusion effect to local farmers, and the guidance by other macro policies. In order to realize a smart development under the circumstances of shrinking, Heqing Town has to adopt some countermeasures, including restructuring the town and village system in a smart way and downsizing the industrial zones; correspondingly, the spatial layout of the town needs to be adjusted so as to maintain a healthy and sustainable growth in the limited space and enhance the development quality.
引文
[1] WEI Y,ZHAO M.Urban Spill over vs.Local Urban Sprawl:Entangling Land-Use Regulations in the Urban Growth of China’s Megacities[J].Land Use Policy,2009,26(4):1031-1045.
2朱金.特大城市郊区“半城镇化”的悖论解释及应对策略--对上海市郊的初步研究[J].城市规划学刊,2014(6):13-21.ZHU Jin.Dilemmas and Counter-Measures of Peri Urbanization Phenomena in Metropolitan Suburbs:The Case Study of Shanghai[J].Urban Planning Forum,2014(6):13-21.
3徐素,朱金.由非均衡走向均衡:城乡一体化进程中的土地要素流动与引导--基于苏南农村地区的近期调研[J].小城镇建设,2018(8):19-25.XU Su,ZHU Jin.From City-Prioritized to Urban-Rural Integration:The Flow of Land Elements in Urban Growth in China and Policy Implications[J].Development of Small Cities&Towns,2018(8):19-25.
4朱金,赵民.从结构性失衡到均衡--我国城镇化发展的现实状况与未来趋势[J].上海城市规划,2014(1):47-55.ZHU Jin,ZHAO Min.From Structural Imbalance to Rebalance:The Current Situation and Future Trend of China’s Urbanization Development[J].Shanghai Urban Planning Review,2014(1):47-55.
5徐素,朱金.基于人口流动的区域城镇化特征及差异化策略探讨--苏浙皖地区的讨论[J].城市发展研究,2015(8):46-54.XU Su,ZHU Jin.Discussions on Different Urbanization Characteristics in Outmigration and Immigration Areas:Case of Jiangsu,Zhejiang and Anhui Province[J].Urban Development Studies,2015(8):46-54.
6郝晋伟.“陷阱”或抑“透支”--中国城镇化发展的现实情境辨释[J].城市规划,2014(2):54-61.HAO Jinwei.Trap or Overdraft:A Discrimination to Factual Condition of Urbanization in China[J].City Planning Review,2014(2):54-61.
7 WIECHMANN T,PALLAGST K M.Urban Shrinkage in Germany and the USA:A Comparison of Transformation Patterns and Local Strategies[J].International Journal of Urban and Regional Research,2012,36(2):261-280.
8 PALLAGST K,SCHWARZ T,POPPER F J,et al.Planning Shrinking Cities[J].Progress in Planning,2009,72(4):223-232.
9 WIECHMANN T.Errors Expected-Aligning Urban Strategy with Demographic Uncertainty in Shrinking Cities[J].International Planning Studies,2008,13(4):431-446.
10 HOLLANDER J B,NéMETH J.The Bounds of Smart Decline:A Foundational Theory for Planning Shrinking Cities[J].Housing Policy Debate,2011,21(3):349-367.
11 TUROK I,MYKHNENKO V.The Trajectories of European Cities,1960-2005[J].Cities,2007,24(3):165-182.
12 GLOCK B,H?USSERMANN H.New Trends in Urban Development and Public Policy in Eastern Germany:Dealing with the Vacant Housing Problem at the Local Level[J].International Journal of Urban and Regional Research,2004,28(4):919-929.
13 SHETTY S,REID N.Global Challenges and Local Responses:Creating a New Urban World in the Shrinking Cities of the US Industrial Midwest[J].Regional Science Policy&Practice,2013,5(2):201-218.
14龙瀛,吴康,王江浩.中国收缩城市及其研究框架[J].现代城市研究,2015(9):14-19.LONG Ying,WU Kang,WANG Jianghao.Shrinking Cities in China and Its Research Framework[J].Modern Urban Research,2015(9):14-19.
15杨东峰,龙瀛,杨文诗,等.人口流失与空间扩张:中国快速城市化进程中的城市收缩悖论[J].现代城市研究,2015(9):20-25.YANG Dongfeng,LONG Ying,YANG Wenshi,et al.Losing Population with Expanding Space:Paradox of Urban Shrinkage in China[J].Modern Urban Research,2015(9):20-25.
(1)在2015年中国城市规划学会年会上,中国工程院院士、深圳市规划和国土资源委员会巡视员郭仁忠透露,全国新城、新区规划总人口已超过34亿人。
(2)来源:国家统计局发布的《2015年国民经济和社会发展统计公报》。
(3)时任上海市委书记韩正在《关于回访督查合庆镇郊环外环境治理工作批示落实情况的报告》中要求规划部门“从区域宏观视角出发,结合地区未来发展契机,进一步研究合庆镇未来的目标定位、空间布局和实施路径”。
(4)户籍人口流入率=(常住户籍人口-登记户籍人口)/登记户籍人口。
(5)2015年,上海市确定了9个区县11个地块作为市级环境综合整治项目,其中包括浦东合庆镇。
(6)同时,浦东机场新跑道的建设扩大了机场噪音区范围,本镇受机场70分贝以上影响区域达26.45km2,占镇域面积的61.77%,从而使得本镇适宜建设发展的区域大为缩减。
2朱金.特大城市郊区“半城镇化”的悖论解释及应对策略--对上海市郊的初步研究[J].城市规划学刊,2014(6):13-21.ZHU Jin.Dilemmas and Counter-Measures of Peri Urbanization Phenomena in Metropolitan Suburbs:The Case Study of Shanghai[J].Urban Planning Forum,2014(6):13-21.
3徐素,朱金.由非均衡走向均衡:城乡一体化进程中的土地要素流动与引导--基于苏南农村地区的近期调研[J].小城镇建设,2018(8):19-25.XU Su,ZHU Jin.From City-Prioritized to Urban-Rural Integration:The Flow of Land Elements in Urban Growth in China and Policy Implications[J].Development of Small Cities&Towns,2018(8):19-25.
4朱金,赵民.从结构性失衡到均衡--我国城镇化发展的现实状况与未来趋势[J].上海城市规划,2014(1):47-55.ZHU Jin,ZHAO Min.From Structural Imbalance to Rebalance:The Current Situation and Future Trend of China’s Urbanization Development[J].Shanghai Urban Planning Review,2014(1):47-55.
5徐素,朱金.基于人口流动的区域城镇化特征及差异化策略探讨--苏浙皖地区的讨论[J].城市发展研究,2015(8):46-54.XU Su,ZHU Jin.Discussions on Different Urbanization Characteristics in Outmigration and Immigration Areas:Case of Jiangsu,Zhejiang and Anhui Province[J].Urban Development Studies,2015(8):46-54.
6郝晋伟.“陷阱”或抑“透支”--中国城镇化发展的现实情境辨释[J].城市规划,2014(2):54-61.HAO Jinwei.Trap or Overdraft:A Discrimination to Factual Condition of Urbanization in China[J].City Planning Review,2014(2):54-61.
7 WIECHMANN T,PALLAGST K M.Urban Shrinkage in Germany and the USA:A Comparison of Transformation Patterns and Local Strategies[J].International Journal of Urban and Regional Research,2012,36(2):261-280.
8 PALLAGST K,SCHWARZ T,POPPER F J,et al.Planning Shrinking Cities[J].Progress in Planning,2009,72(4):223-232.
9 WIECHMANN T.Errors Expected-Aligning Urban Strategy with Demographic Uncertainty in Shrinking Cities[J].International Planning Studies,2008,13(4):431-446.
10 HOLLANDER J B,NéMETH J.The Bounds of Smart Decline:A Foundational Theory for Planning Shrinking Cities[J].Housing Policy Debate,2011,21(3):349-367.
11 TUROK I,MYKHNENKO V.The Trajectories of European Cities,1960-2005[J].Cities,2007,24(3):165-182.
12 GLOCK B,H?USSERMANN H.New Trends in Urban Development and Public Policy in Eastern Germany:Dealing with the Vacant Housing Problem at the Local Level[J].International Journal of Urban and Regional Research,2004,28(4):919-929.
13 SHETTY S,REID N.Global Challenges and Local Responses:Creating a New Urban World in the Shrinking Cities of the US Industrial Midwest[J].Regional Science Policy&Practice,2013,5(2):201-218.
14龙瀛,吴康,王江浩.中国收缩城市及其研究框架[J].现代城市研究,2015(9):14-19.LONG Ying,WU Kang,WANG Jianghao.Shrinking Cities in China and Its Research Framework[J].Modern Urban Research,2015(9):14-19.
15杨东峰,龙瀛,杨文诗,等.人口流失与空间扩张:中国快速城市化进程中的城市收缩悖论[J].现代城市研究,2015(9):20-25.YANG Dongfeng,LONG Ying,YANG Wenshi,et al.Losing Population with Expanding Space:Paradox of Urban Shrinkage in China[J].Modern Urban Research,2015(9):20-25.
(1)在2015年中国城市规划学会年会上,中国工程院院士、深圳市规划和国土资源委员会巡视员郭仁忠透露,全国新城、新区规划总人口已超过34亿人。
(2)来源:国家统计局发布的《2015年国民经济和社会发展统计公报》。
(3)时任上海市委书记韩正在《关于回访督查合庆镇郊环外环境治理工作批示落实情况的报告》中要求规划部门“从区域宏观视角出发,结合地区未来发展契机,进一步研究合庆镇未来的目标定位、空间布局和实施路径”。
(4)户籍人口流入率=(常住户籍人口-登记户籍人口)/登记户籍人口。
(5)2015年,上海市确定了9个区县11个地块作为市级环境综合整治项目,其中包括浦东合庆镇。
(6)同时,浦东机场新跑道的建设扩大了机场噪音区范围,本镇受机场70分贝以上影响区域达26.45km2,占镇域面积的61.77%,从而使得本镇适宜建设发展的区域大为缩减。