特大城市的群租治理模式转型：从运动式治理走向包容性治理

The Transformation of Group-oriented Leasing Governance Pattern in Megacities: From Campaign-style Governance to Inclusive Governance

尽管群租的"治乱循环"已成为特大城市社会治理亟待解决的现实难题,但已有研究对此仍缺乏充分的学术建构。依据空间政治经济学视角,可以将群租的"病因"诊断为特大城市中的居住贫困。通过对群租治理京沪叙事的逻辑提炼可以发现,当前中国特大城市的群租治理是一种典型的地方运动式治理,它悬浮在国家运动式治理与基层运动式治理之间,治理意蕴的弱政治化和治理机制的半常规化致使其面临合法性与有效性双重危机,不但难以消除居住贫困,反而造成了居住贫困再生产。相比之下,包容性治理强调将"包容性"嵌入群租治理的制度、体制和机制中,将群租治理作为实现公平正义、美好生活和赋权增能的政治使命,在特大城市设立直接向中央政府负责的独立办事机构作为群租的"元治理"单位,构建利益表达机制和府际合作机制,不仅可以增强体制特征合法性,还能够通过创造有效性来累积体制作为合法性,是更为适宜的群租治理模式。

Although the regulation-disorder cycle of group-oriented leasing has been an urgent problem in megacities social governance, academic construction is still inadequate in current studies. From the perspective of spatial political economy, the ultimate source of group-oriented leasing could be diagnosed as inhabiting poverty in megacities. The logic of group-oriented leasing governance in Beijing and Shanghai demonstrates that, the pattern of group-oriented leasing governance in contemporary megacities is a typical campaign-style governance in local level, and it floats between state level campaign-style governance and grassroots level campaign-style governance, faced with dual crisis of legitimacy and effectiveness for weak political nature in governance significance and semi-regularization in governance mechanism, and it creates reproduction of inhabiting poverty instead of curing inhabiting poverty. By comparison, inclusive governance embeds the concept of inclusion into institution,system and mechanism of group-oriented leasing governance, treating group-oriented leasing governance as a political mission which is characterized with justice, good life and empowerment, establishing independent organizations in megacities as meta-governance unit which is accountable to central government directly, constructing mechanism for expression of interest and intergovernmental collaboration. Inclusive governance is a better grouporiented leasing governance pattern, which not only improves the legitimacy in system characteristic but also accumulates legitimacy in system behavior through creating effectiveness.