超大城市空间治理的价值、挑战与策略

The Value,Challenge and Strategy of Mega-city Space Governance

超大城市治理是针对千万人口规模的城市,应用各种正式的制度和规则以及非正式的制度安排,充分发挥多元主体能动性,在公共事务领域积极协调生存矛盾和利益冲突、促进城市有序高效运行、共同提高城市生活环境品质和社会福祉的过程、方式和机制,包括空间治理和社会治理。超大城市治理既具有城市治理、大都市治理的普遍性,又有其规模特征所决定的特殊性。当下中国超大城市的综合整治与城市更新行动中,各超大城市之间和超大城市内部,对待边缘与中心地区存在着殊为不同的态度、手段和方式,使得超大城市空间治理的价值理念出现分裂。超大城市空间治理面临着特殊的挑战,其中与超大城市自身特征相关的方面包括资源环境的制约性与集约性、系统结构的复杂性与适应性、“超大”的负效应与正效应的并存,功能结果方面存在“正治理”与“反治理”的不确定性,形式方面存在“管理”变“治理”的名与实问题。超大城市的空间治理决策应当在国家战略与国土空间系统中进行,充分考虑公共安全、公共健康、公平正义和公共效率。

Mega city governance refers to the process,method and mechanism,concerning inter governance and social governance,in which a city with a population of 10 million,we make full use of various formal sys tems,rules and informal institutional arrangements,give full play to the initiative of multiple subjects,actively coordinate survival conflicts and interest conflicts in public affairs,promote the orderly and efficient operation of the city,and jointly improve the quality of urban living environment and social welfare.The super city gov ernance has not only the universality of urban governance and metropolitan governance,but also the particular ity determined by its scale characteristics.In the current comprehensive renovation and urban renewal of China's mega cities,there are totally different attitudes,means and ways to treat the rural and downtown areas with in mega cities,which split the value concept of its spatial governance.The spatial governance of mega cities is facing special challenges,among which the aspects related to their own characteristics include the restriction and intensification of resources and environment,the complexity and adaptability of system structure,the co existence of"super sized"negative effects and positive effects,the uncertainty of"positive governance"and"anti governance"in functional results,and the issues of name and reality of"management"and"governance"in form.The spatial governance decision making of mega cities should be carried out in the national strategy and land spatial system,and should be given full consideration to public security,public health,fairness and justice,and public efficiency.