新型城镇化进程中的“伪城镇化”现象:生成逻辑与风险治理

The Phenomenon of "Pseudo Urbanization" in the Process of New Urbanization: Generating Logic and Risk Management

在复杂现代化大转型的背景下,以战略方式进入国家治理场域的新型城镇化在清晰表达国家治理语境和实践逻辑的同时,其风险也从历时性的积累向共时性迈进,总体上呈现出"伪城镇化"怪象。它表现出人地关系非对称性、城乡二元分割非均衡性、治理主体单一性、多重风险共生性的特点。基于"控制论"的分析视角,深入剖析政府内部的结构性缺陷,可以清晰揭示"发展主义"驱动下的地方政府"大跃进"式的土地开发策略、央地间的激励强度与组织目标替代悖论、中央政府运动式监察治理手段是"伪城镇化"生成逻辑背后的深层诱因,其本质反映了中国常态治理能力不足情况下中央权威体制与地方有效治理之间衔接治理失灵的现状。它容易造成新型城镇化进程中推进动力的工具性、空间结构的破碎性以及多重风险题域的共生性。为此,破除"伪城镇化"的多重风险需要通过治道变革的思想更新治理理念、优化治理主体、规范治理权力、改进治理工具予以回应,通过建构系统化的治理网络,以期突破传统治理的路径依赖,从而深度推进国家治理体系和国家治理能力,使新型城镇化沿着人本化健康可持续的方向发展。

In the background of the transformation of complex modernity, while the new urbanization into national governance domain in a strategic manner clearly expresses national governance context and practice logic, the risk also steps from a diachronic accumulation to the synchronization, overall showing a ＂pseudo urbanization＂ phenomenon. It shows the characteristics of the non-symmetry of the relationship between human and land, the non-equilibrium of the two elements of urban and rural areas, the unitary nature of governance and the nature of multiple risks. Based on ＂control theory＂ perspective, in-depth analysis of structural defects within the government can clearly reveal the ＂great leap forward＂ development strategy under the ＂developmentalism＂ drive of local governments and the replacement paradox between the incentive and the objectives of the organization of the central government and local government. The movement type supervision and governance of central government is the deep cause of the logic formation of ＂pseudo urbanization＂, which reflects the status of convergence governance failure between the central authority and local institutional governance under insufficient normal governance. It is easy to cause the driving power being the tool, the fragmentation of space structure and symbiosis of multiple risk domains in the new urbanization process. Therefore, eliminating the multiple risks of pseudo urbanization needs to update governance reform ideas and the concept of governance, optimize the governance main body, normalize governance power, and improve governance tools to respond. Through the construction of systematic network governance, the traditional path dependence of governance is broken through to in-depth promote national governance systems and governance capacity. In such a way, the development of new urbanization can follow the direction of health and sustainability.