上海乡镇撤并:效应、问题及其策略——以金山区朱泾镇和奉贤区奉城镇为例

Effects, Problems and Strategies of Townships Merging in Shanghai:Cases Study of Zhujing Town in Jinshan District and Fengcheng Town in Fengxian District

21世纪以来我国乡镇撤并所引发的撤制镇问题在当前受到诸多关注.基于人口普查、土地使用及高德POI数据等分析发现,上海乡镇撤并可分为以强并弱、多元撤并等类型.聚焦金山区朱泾镇和奉贤区奉城镇两个典型案例的规划实践,进一步发现:乡镇撤并促进了人员机构精简、资源优化配置,增强了中心镇集聚能力.但当前撤并存在明显的行政偏好,撤制镇在空间规划体系中普遍缺位,导致公共服务弱化、发展动力不足等问题.为此,乡镇撤并的规划应当确立保基本与优发展的双重目标,根据撤制镇的不同资源禀赋进行差异化的策略选择,着力推进新旧动能转换,优化完善空间规划体系对撤制镇发展的支撑作用,重新发掘撤制镇在新时代上海城乡发展中的空间价值.

Since the 21st century,the issue of townships merging has attracted much attention.Based on the analysis of population census,land use and POI(Point of Interest)of AutoNavi,we find that most types of townships merging in Shanghai are strong and weak merger or diversified merger.Focusing on the planning practice of two typical cases,Zhujing town in Jinshan and Fengcheng town in Fengxian,we find that the townships merging has achieved results in promoting the optimal allocation of resources,enhancing the agglomeration capacity of central towns and streamlining personnel and institutions.However,there is an obvious administrative preference for merging,and its absence in the spatial planning system has led to the weakening of public services and the lack of development power.Therefore,the planning response to townships merging should establish the dual goal of protecting basic and optimal development.It should carry out differentiated strategies for different towns according to their resource backgrounds,promote new momentum of development,and further optimize the spatial planning system to support the development of the merged towns,to re-explore the spatial value of the merged towns in the urban and rural development in Shanghai in the new era.