公共利益共识的形成——澳门新城区总体规划公众咨询引发的思考

FORMATION OF CONSENSUS ON PUBLIC INTERESTS: REFLECTIONS ON PUBLIC CONSULTATION OF NEW DISTRICT MASTER PLAN, MACAO

城市规划作为一项公共政策,其目标导向在于实现公共利益。但在规划制定过程中,由于公共利益范畴的不确定性,随时间、地点可变性,以及权利主体多元性等特点,究竟由谁来主张公共利益,尤其当不同的利益发生矛盾时,公共利益的共识又是如何形成的?针对以上问题,城市规划界急需讨论并争取共识。文章以澳门新城区规划制定中澳门外港码头搬迁为案例,详细描述了在澳门行政区治理结构下,公共利益共识的形成过程,思考了各方行为逻辑以及其对最终规划的影响,提出要重视规划成果形成的过程,在价值取向、思维方式、利益共享上更多开放包容、让更多利益相关者参与制定过程,并最大限度地达成共识,唯如此规划才能有效发挥其公共政策综合性作用。最后,文章从公共利益形成的视角对我国转型期城市规划理念转变、规划制定过程和规划成果表达等提出建议。

The goal of urban planning as a public policy lies in the realization of public interest.However,in the process of planning-making,due to characteristics such as the uncertainty of the scope of public interest,the variability of time and place,the diversity of subject of rights,etc.,who should stand for the public interest especially when different interests conflict,and how would the consensus of public interest be formed?To answer the above questions,there is an urgent need to discuss and strive for consensus in the field of urban planning.The article takes the case of the relocation of the Macao Outer Harbor Ferry Terminal in the Macao New Districts Master Plan,describes in detail the process of reaching consensus of public interest under the governance structure of the Macao administrative region,and considers the behavior logic of the all parties involved and their impact on the final planning results.The article proposes to attach more importance to the process of planning-making,to be more open and inclusive in value orientation,way of thinking,and benefit sharing to involve more stakeholders in the plan formulation process,to maximize consensus,so that the planning can effectively play its comprehensive role as a public policy.Also,the article puts forward suggestions from the perspective of public interest on transformation of urban planning concept,the process of planning-making,the expression of planning results,etc.