以城市规划的协作方法建构制度能力

Building Institutional Capacity Through Collaborative Approaches to Urban Planning

当前在欧洲,提升场所品质正吸引越来越多来自政策和学术方面的兴趣关注。这也带来相应的问题,即如何采取适宜的管治能力来实现这些改善。我认为,上述能力的一个关键性要素存在于地方政治文化品质之中。其中的一些得到了较好的整合、联系和认知,人们能够很容易地把握机会加以动员来改善地方状况。另一些则是碎片化的,缺乏与权力和知识资源之间的联系,缺乏动员的能力,因而难以组织起来形成地方性差异。近年来,城市管治能力变革的一个重点,就是鼓励开展具有催化剂作用的项目与合作关系,这一点在英国特别突出。最近欧洲的经验显示,如果没有对于合作形式及其与更广泛政治文化联系方式的精心考虑,将难以获得更为全面的改革效果,甚至还可能导致地方能力的进一步分裂。通过分析,我发现在场所营造活动中,协作方法能获得更为有效和持久的改革效果。协作方法强调了以下活动的重要性,包括建立关于场所品质的新的政策论述,在政策制定和实施过程中开展利益相关群体的协作与互动,在传统权力精英之外扩大利益相关群体的共同参与,认知不同形式的地方知识,以及建设广泛的社会网络作为制度资本的资源。这些将城市规划的任务从"场所建设("building places)转变为在行政社区范围内培育制度能力,从而推动进行中的"场所营造("place-making)活动。

Improving the qualities of places is attracting increasing policy and academic interest in contemporary Europe. This raises questions about the appropriate governance capacity to deliver such improvements. I argue that a key element of such capacity lies in the quality of local policy cultures. Some are well integrated, well connected, and well informed, and can mobilize readily to act to capture opportunities and enhance local conditions. Others are fragmented, lack the connections to sources of power and knowledge, and the mobilization capacity, to organize to make a difference. In recent years, the emphasis in attempts to change urban governance capacity, particularly in Britain, has been on encouraging catalytic projects and partnerships. Recent experience across Europe suggests that wider transformative effects are difficult to achieve without careful consideration of the partnership form and how it connects to the wider policy culture. They may also have the effect of increasing the fragmentation of local capacity. I examine the potential of collaborative approaches in place-making initiatives in achieving more effective and durable transformations. Collaborative approaches emphasize the importance of building new policy discourses about the qualities of places, developing collaboration among stakeholders in policy development as well as delivery, widening stakeholder involvement beyond traditional power elites, recognizing different forms of local knowledge, and building rich social networks as a resource of institutional capital through which new initiatives can be taken rapidly and legitimately. They shift the task of urban planning from ‘building places＇ to fostering the institutional capacity in territorial political communities for ongoing ‘place-making＇ activities.