嵌套结构中的治理偏差:中国城市风险的危机转化

Governance Bias in Nested Structure: The Crisis Transformation of Chinese Urban Risks

城市风险转化不仅来自城市的内在张力,也来自治理体制的压力。一方面,城市风险的关联性、叠加性和复杂性加深了风险的不确定性和治理成本。另一方面,城市风险治理的特殊性和复杂性源于治理结构的嵌套。因结构嵌套而产生的治理偏差塑造了城市风险转化体制,即基于城市—国家—区域—全球的治理尺度和基于中央—地方、政府—市场—社会的治理关系在城市中的叠加,成为城市风险向危机转化的制度根源。纵向体系的信息传递失灵、治理资源的时空失衡、治理网络韧性失效构成了风险转化的核心机制,也是城市风险治理偏差的直接体现。行政事务的属地管理在强化地方责任的同时也使地方成为信息的直接控制者和风险的直接回应者。城市空间的行政建构触发了治理资源分配的意外结果,而政治问责则约束着城市风险识别、回应的策略选择。面向未来的城市风险治理既是全球挑战,也是国家治理的重要内容,需要在治理基础、治理网络和治理过程层面予以回应。

The transformation of urban risk comes not only from the inherent tension of the city but also from the pressure of the governance system.On the one hand,urban risks that have the characteristics of relevance,superposition,and complexity have deepened the uncertainty of risks and the cost of governance.On the other hand,the particularity and complexity of urban risk governance stem from the nested governance structure.Governance deviations caused by the nested structure have shaped the urban risk transformation system,that is,the superposition of the governance scale based on city-country-region-global governance and central-local,government-market-society governance relationships in the city has become the institutional roots of the transformation of urban risks.The failure of information transmission in the vertical system,the time-space imbalance of governance resources,and the failure of governance network resilience constitute the core mechanism of risk transformation.It is also a direct manifestation of the deviation of urban risk governance.The territorial management of administrative affairs not only strengthens the local responsibility but also makes the local government become the information controller and the risk responder.The administrative construction of urban space triggers unexpected results of the allocation of governance resources.And political accountability restricts the strategies of urban risk identification and response.Urban risk governance is not only a global challenge but also an important part of national governance in the future.It needs to be responded from the aspects of governance foundation,governance network,and governance process.