空间再组织:城乡接合部闲置农房产权整合与社会有效治理——上海农房再利用案例研究

Spatial Reorganization:Property Rights Integration of Idle Rural Housing and Effective Social Governance in Urban-rural Fringe Areas Based on a Case Study of Rural House Re-use in Shanghai

城乡接合部作为外来人口、非正规经济集聚的空间载体,面临着严重的空间利用负外部性失控难题。在农房出租、转租活动中,当地村民从村庄撤离、外来人口在城乡接合部集聚,推动农房产权离散化、空间社会去组织化,空间利用中的市场合约机制、社会自治机制渐趋失灵。政府采取的空间治理活动,在租户的策略性抵制中亦难取得持久功效。上海嘉定区和浦东新区的镇村企业通过整合农房使用权,获得了农房经营管理权。通过利益共享机制,房屋所有权主体、使用权主体、管理责任主体被有机纳入空间治理结构,推动了城乡接合部社会共治机制的形成。研究发现,基于农房产权整合的空间再组织机制和将市场作为治理工具的协同机制,有效化解了城乡接合部农房空间利用负外部性失控难题。这为全国城乡接合部有效治理提供了经验借鉴。

Urban-rural fringe areas,as the spatial carrier of migrant population and informal economic agglomeration,are facing a serious problem of losing control of negative externalities in space utilization.In the leasing and subleasing activities of rural housing and land,local villagers withdraw from villages and migrant people gather in urban-rural fringe areas,which promotes the decentralization of spatial property rights and generates a disorder of organized social space.As a result,the market autonomy and social constraint rules of space utilization are gradually becoming invalid.The spatial governance practices adopted by governments are also difficult to achieve lasting results in the strategic resistance of tenants.By integrating the use right of farmers’houses,rural collectively-owned enterprises acquired the management right of rural housing.Through the mechanism of benefit sharing,house owners,users and managers as the stakeholders are incorporated into the spatial governance framework,which promotes the formation of the mechanism of joint construction,joint governance and sharing in urban-rural fringe areas.In conclusion,the spatial reorganization mechanism based on property rights integration and the government-society coordination using the market as a governance tool can effectively solve the problem of runaway negative externalities of space utilization and provide experience for effective governance in urban-rural fringe areas in China.