城镇密集区规划决策机制研究
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摘要
伴随着快速的城市化进程,全球化、区域化的双重作用,经济发展的客观规律和相对滞后的体制转轨,在城镇密集区层面产生了激烈的碰撞,使这些地区的发展面临着激烈的全球竞争和频繁的内部利益冲突。立足于“协调”和“整合”的城镇密集区规划,正在摒弃传统区域规划的“理想色彩”,努力向灵活的“区域公共政策指引型规划”转变,相应的机制、原则和制度安排成为研究的重要方向,在理论与实践方面都具有现实意义。
从本质上讲,城镇密集区规划具有典型的公共政策属性。然而,城镇密集区作为经济区的概念,并不存在一级完整的政府和行政架构。在这样的前提下,规划由谁来决策,怎样决策才能保证区域内多个主体公平的发展权利和利益诉求,实现区域空间资源的有效配置,就成为急需研究的问题。
正是基于这一认识,本文运用公共管理的相关理论,从公共政策的视角审视城镇密集区规划的实践与运行现状,分析规划需要面对的日趋复杂化的政策环境和现行规划决策模式存在的问题;通过研究城镇密集区多中心的空间结构和政策主体结构,指出缺乏多层级多元参与的规划决策不能与现实的行政体制和经济环境实现有效对接,是城镇密集区规划难以运行的本质原因;构建以政策为导向的规划决策机制,是城镇密集区规划走向公共政策的核心内容。
在此基础上,运用政策分析的工具,突破单一主体的传统决策模式,构建由纵向的府间体系与横向的治理体系经交叠、嵌套而形成的具有多层次、多中心特点的复合型决策主体结构,讨论决策主体之间的关系及管理机制;以实现参与为规划决策的构建导向,协调动员多级城市政府以及企业和社会的多元力量,界定决策参与的方式与途径,把决策的参与者分为组织机构与利益相关者两大部分,并分别阐述其不同的参与目标;最后,从决策过程的角度,将复合型主体的参与贯穿到规划目标确定、规划方案设计、规划方案选择和规划审批的全过程。
Along with the rapid urbanization process, the dual role of globalization and regionalization, as well as the objective law of economic development and hysteretic institutional transformation, are all making fierce collisions in CCAs, so that the development in these areas is facing a rigorous global competition and frequent internal conflicts. Based on‘harmonization’and‘integration’,CCA planning is getting rid of the idealization of traditional regional planning and becoming a flexible‘Regional policy guidelines planning’hard. Corresponding mechanism, principles and institutional arrangements is becoming an important direction of research, has significance in both theory and practice.
In essence, City-and-Town Concentrated Area (CCA) Planning has a typical attribute of public policy. However, as an economic zone, CCA don’t have a hierarchy of administrative bodies. Based on this premise, in order to allocate the regional space resources effectively, the major difficult problem is that who making the decision and how the decision making could ensure the equitable development rights and interest demands from the region members.
Based on this cognition and the relevant theory of public administration, this thesis surveys the practices as well as the actuality of the CCA planning, analyzes the increasingly complicated policy environments and the problems in decision-making model of CCA planning. By studying the polycentric space structure of CCA and policy actors structure, it indicates that the essential reason for difficult operation of CCA planning is that the planning policy which is lack of multilayer and multimember participation can’t adapt to the practical administrative system and economic environment. It also indicated that to construct the planning decision-making mechanism taking policy as the lead is the central content for the realization of public policy in CCA planning.
On this basis, it applies the policy analyzing facility, breaks through the traditional decision-making mode with sole actor, constructs the multiple decision-making structures with multilayer and multimember actors, and discusses the relationship among the actors and the administrative system. It divides participants into organizing institution and interest relative, and separately explains the different participating objective. Finally, from the angle of decision-making process, it makes the participation of the multiple actors impenetrate into the whole process including confirmation of planning object, design and selection of planning project, and planning examination.
从本质上讲,城镇密集区规划具有典型的公共政策属性。然而,城镇密集区作为经济区的概念,并不存在一级完整的政府和行政架构。在这样的前提下,规划由谁来决策,怎样决策才能保证区域内多个主体公平的发展权利和利益诉求,实现区域空间资源的有效配置,就成为急需研究的问题。
正是基于这一认识,本文运用公共管理的相关理论,从公共政策的视角审视城镇密集区规划的实践与运行现状,分析规划需要面对的日趋复杂化的政策环境和现行规划决策模式存在的问题;通过研究城镇密集区多中心的空间结构和政策主体结构,指出缺乏多层级多元参与的规划决策不能与现实的行政体制和经济环境实现有效对接,是城镇密集区规划难以运行的本质原因;构建以政策为导向的规划决策机制,是城镇密集区规划走向公共政策的核心内容。
在此基础上,运用政策分析的工具,突破单一主体的传统决策模式,构建由纵向的府间体系与横向的治理体系经交叠、嵌套而形成的具有多层次、多中心特点的复合型决策主体结构,讨论决策主体之间的关系及管理机制;以实现参与为规划决策的构建导向,协调动员多级城市政府以及企业和社会的多元力量,界定决策参与的方式与途径,把决策的参与者分为组织机构与利益相关者两大部分,并分别阐述其不同的参与目标;最后,从决策过程的角度,将复合型主体的参与贯穿到规划目标确定、规划方案设计、规划方案选择和规划审批的全过程。
Along with the rapid urbanization process, the dual role of globalization and regionalization, as well as the objective law of economic development and hysteretic institutional transformation, are all making fierce collisions in CCAs, so that the development in these areas is facing a rigorous global competition and frequent internal conflicts. Based on‘harmonization’and‘integration’,CCA planning is getting rid of the idealization of traditional regional planning and becoming a flexible‘Regional policy guidelines planning’hard. Corresponding mechanism, principles and institutional arrangements is becoming an important direction of research, has significance in both theory and practice.
In essence, City-and-Town Concentrated Area (CCA) Planning has a typical attribute of public policy. However, as an economic zone, CCA don’t have a hierarchy of administrative bodies. Based on this premise, in order to allocate the regional space resources effectively, the major difficult problem is that who making the decision and how the decision making could ensure the equitable development rights and interest demands from the region members.
Based on this cognition and the relevant theory of public administration, this thesis surveys the practices as well as the actuality of the CCA planning, analyzes the increasingly complicated policy environments and the problems in decision-making model of CCA planning. By studying the polycentric space structure of CCA and policy actors structure, it indicates that the essential reason for difficult operation of CCA planning is that the planning policy which is lack of multilayer and multimember participation can’t adapt to the practical administrative system and economic environment. It also indicated that to construct the planning decision-making mechanism taking policy as the lead is the central content for the realization of public policy in CCA planning.
On this basis, it applies the policy analyzing facility, breaks through the traditional decision-making mode with sole actor, constructs the multiple decision-making structures with multilayer and multimember actors, and discusses the relationship among the actors and the administrative system. It divides participants into organizing institution and interest relative, and separately explains the different participating objective. Finally, from the angle of decision-making process, it makes the participation of the multiple actors impenetrate into the whole process including confirmation of planning object, design and selection of planning project, and planning examination.
引文
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