多层级治理视角下跨界地区合作模式探究——以广佛为例

基于多层级治理的视角,以广州、佛山两市为研究地区,通过深入访谈、文献资料分析等方法,从宏观政策尺度和微观项目尺度分别对广佛两市及其所辖的区、街镇不同层级政府在实施《珠江三角洲地区改革发展规划纲要(2008~2020年)》过程中,跨界地区合作模式制度建构及实践进行了深入研究。出于行政压力和经济利益的驱动,地级市政府的角色出现了新的变化,水平联系显著增强,促成了跨界地区合作在制度建构方面的新进展,形成了“以项目库为载体的地级市单一合作模式”。研究发现,这种新的合作模式有助于将不同城市的诉求表达程序化,可以协调合作过程中存在的问题及督办项目的进展,具有较强的可操作性和可监督性;但也存在一些不足。受限于行政管理体制,目前的跨界合作集中在地级市单一层级,区及镇街政府缺乏直接合作的平台;合作平台不能全天候运作;缺乏相应的激励机制,地方政府的积极性难以持续等。     

The state and its agencies in coastal resources management: The political ecology of fisheries management in Pattani, southern Thailand

Various stakeholders contribute to the current state of resource management in the inshore fisheries of Pattani, southern Thailand. Taking the state, empowered by national legislation, as the main agent of enforcement, this paper uses an actor-oriented approach derived from political ecology to evaluate how key agents in state agencies at provincial and district levels translate Thai political and legal systems at the local level; more specifically, how cross-scalar institutional linkages and translations affect coastal resources management and the access of village-based, small-scale fishermen to coastal resources. The paper shows that trans-scalar interpretations have created a space of contestation and negotiation in resource governance at the local level that reveals intrastate tensions. Based on extensive fieldwork, the paper demonstrates that access to environmental resources at the local level is highly influenced or regulated by the unequal power relations between different actors at various levels.     

空间规划政策在中国五年计划/规划体系中的演变

作为社会主义国家,国民经济和社会发展五年计划/规划对调节中国区域发展具有重要的作用。自1953年第一个五年计划以来,尤其是随着市场化改革和权力下放,中国政治经济背景发生了重要变化,客观需要五年计划/规划体系中的规划内容做出相应调整。本文分析了空间规划元素在中国五年规划体系中从无到有、不断丰富完善的演变特点及其机制,同时指出了五年规划对空间发展作用的变迁:① 初期,并无空间规划,空间发展只是部门工业项目布局的结果;② 改革开放之后一段时期,空间规划的形式主要体现在划定特殊的政策区域和空间分类引导;③“十一五”规划以来,空间规划则以空间分类引导与约束并举的形式出现。通过构建政府与市场主体的关系、中央和地方的关系,以及空间发展状态所引起的规划反馈3 个维度的分析框架,着重探讨了五年规划体系中空间规划元素的变迁机制。“十一五”以来重点加强和改善了空间规划内容,其目的是使经济规划与空间规划的结合更加紧密,以克服中国当前空间管治的各种困境。     

新时期我国区域空间规划的方法论探讨——以"西部开发重点区域规划前期研究"为例

区域规划是大国进行空间管治不可或缺的层次和手段。随着跨区域性问题越来越突出和进一步市场化后国家宏观调控手段的变化,以新的视野和新的方法开展区域规划在我国已经十分迫切。本文分析了新时期进行区域空间规划需要考虑的因素,包括落实科学发展观、经济全球化和经济体制转型 (市场化) 等;通过阐述"点-轴系统"理论、全球化下的"城市区域"理论以及"人地关系地域系统"理论,分析了区域空间规划的理论基础;最后根据西部开发重点区域规划前期研究的工作经验,讨论了进行区域空间结构规划的一些具体方法。作者提出,需要把握现阶段我国社会经济发展的核心特征、并考虑有效可行的管治手段,以全球化视野和市场化思维考虑区域发展和规划问题。     

Cooperation at different scales: challenges for local and international water resource governance in South Africa

Theory on environmental governance and water governance emphasises decentralised, devolved forms of interaction between stakeholders. As previously excluded actors are empowered to take part in governance, new forms of cooperation are created. This paper examines how the cooperative principle has influenced stakeholder interaction at the local and international scales of water governance in South Africa. Water policies and initiatives have been set up to promote multi-level governance that emphasises cooperation between various stakeholders. The emphasis on cooperation and inclusiveness is particularly pertinent to the South African context because of its apartheid past. The paper asks whether there have been new forms of cooperation between a wider array of actors, as the theory proposes. By using the case studies of the Sabie catchment and the Lesotho Highlands Water Project to examine local and international level governance, the paper finds challenges related to power disparity and interdependence of actors, and risk perceptions of inclusive decision-making. It is found that at both the local and international level, the state, which is a 'traditional' actor, still plays an influential role in decision-making. 'New' actors such as businesses, civil society, and regional institutions are more visible but have limited decision-making power. Non-linear, time-consuming forms of cooperation occur in water governance.     

Regions and sustainable development: regional planning matters

This paper looks at how the term 'sustainable development' has been used in the process of regional plan making over the past decade. It emphasizes the differing geographies of these debates within England, in terms of how sustainable development has been used to justify different types of approach in different parts of the country. Both drawing on and challenging recent work on state theory, the paper argues the need to see regional planning as a part of a multi-scalar governance system, whose importance should not be underestimated.     

中国区域开发模式的选择

本文通过资本流动对中国区域开发的作用研究,概括了中国传统区域发模式——“内陆均富”和“沿海先富”及其存在问题,运用西方现代区域发展理论构造了一个以城市为主体的新型区域开发模式.     

地方自治背景下印度尼西亚空间规划面临的挑战

空间规划通过协调区域活动,合理地利用空间,辅助国家政治、经济和社会等事务的治理。印尼的空间规划由总统制定、落实,它体现着国家政治层面的发展愿景和任务。当国家治理结构改变时,各区域的空间规划及其具体的实施过程也随之改变。分权化和地方自治是2001年以来印尼政府体制的重大变革。通过相关规划法律条文和文献分析,发现空间规划开始面临一系列问题,主要表现为资金和专业人员的缺乏、政策交叉现象和空间规划违规行为等。此外,印尼的地方自治制度对空间规划产生了一定的积极影响：首先,在地方自治的背景下,地方政府通过系统的管理增加了区域收入,以支持空间规划的实施;其次,地方政府开始优先聘用空间规划的专业人员,制定更加有效的空间规划政策;最后,各地区加强了对空间规划违规者的执法力度,增强了区域间团结意识,从而促进地区繁荣发展。目前中央与地方之间在权力和利益分配上仍存在着大量的博弈和冲突,应加强上下级政府之间的沟通与合作,保障地方对地方相关事务决策时的参与权,建立地方利益表达与平衡的机制,提高中央决策的科学化和民主化水平。     

GIS AND COLLABORATIVE URBAN GOVERNANCE: UNDERSTANDING THEIR IMPLICATIONS FOR COMMUNITY ACTION AND POWER

Through recent changes in urban governance practices, citizens and community organizations assume ever-greater responsibility for local-level planning and service delivery. Scholars have debated whether this shift disempowers community organizations by subsuming their plans and priorities into state planning imperatives or empowers them through inclusion of community priorities and local knowledge. In carrying out their new responsibilities, many community organizations are adopting tools such as GIS. Strikingly similar questions have been raised about empowerment, disempowennent, incorporation, and autonomy; but relatively little work has systematically documented the ways in which GIS use alters community-level decision-making efforts. In this paper, I show how GIS use fosters changes in the language, practices, and paradigms of community planning, particularly strengthening an instrumental rational approach to community planning and revitalization. Drawing on research with a Minneapolis, Minnesota, neighborhood organization, I argue that these impacts of GIS use on community planning practices complicate and intensify a dynamic tension between incorporation and autonomy that community organizations experience within collaborative governance approaches. [Key words: community-based planning, GIS, urban governance.]     

对机构改革背景下空间规划体系构建的思考

“建立空间规划体系”是自然资源部的一项重要职能,也是整合空间规划、保障空间治理机制有效运行的必然要求。在借鉴国外空间规划体系的基础上,按照适应中国政治体制和法律基础、适应未来空间开发和空间治理变化的需求,提出构建层层传导的空间规划体系确保国家重大战略部署得以落实;提出在微观尺度空间规划进行空间开发权与土地利用权的分配,作为实施空间用途管制的法律依据,保障地方多样化、灵活化的发展;通过构建“宏观政策性/指导性规划—中观衔接性规划—微观实施性规划”的空间规划体系,为国家建立和完善空间规划体系、提升空间治理能力提供参考。     

协作式环境管理在粤港澳大湾区中的应用——以跨界河治理为例

以粤港澳大湾区跨界河流治理的协作机制为代表,选取淡水河、深圳河与鸭涌河为例进行梳理与比较分析,分别探讨了以粤内、粤港与粤澳为核心的伙伴关系在协作式河流规划治理中的协作异同。结果发现:1)淡水河、深圳河与鸭涌河分别是以多级政府部门管理决策主导、多元主体参与和政府政策主导的协作机制。2)协作过程均存在规划目标不一致、囿于双边协作、公众协作意识薄弱和未形成可持续的协作机制等问题。3)行政体制是影响跨界河治理的表面因素,内在因素为参与主体达成伙伴关系的不同,最终通过协作模式、规划信息以及机制设计等差异影响治理结果。最后对建构粤港澳大湾区环境管理协作机制提出政策建议。     

Estimating the fluvial sediment input to the coastal sediment budget: A case study of Ghana

Knowledge of fluvial sediment supply to the coastal sediment budget is important for the assessment of the impacts on coastal stability. Such knowledge is valuable for designing coastal engineering schemes and the development of shoreline management planning policies. It also facilitates understanding of the connection between rivers in the hinterland and adjoining coastal systems. Ghana's coast has many fluvial sediment sources and this paper provides the first quantitative assessments of their contributions to the coastal sediment budget. The methods use largely existing data and attempt to cover all of Ghana's significant coastal rivers. Initially work was hindered by insufficient direct measured data. However, the problem was overcome by the application of a regression approach, which provides an estimated sediment yield for non-gauged rivers based on data from gauged rivers with similar characteristics. The regression approach was effective because a regional coherence in behaviour was determined between those rivers, where direct measured data were available. The results of the assessment revealed that Ghana's coast is dissected by many south-draining rivers, stream and lagoons. These rivers, streams and lagoons supply significant amounts of sediment to coastal lowlands and therefore contribute importantly to beaches. Anthropogenic impoundment of fluvial sediment, especially the Akosombo dam on the Volta River, has reduced the total fluvial sediment input to the coast from about 71 × 10⁶ m³/a before 1964 (pre-Akosombo dam) to about 7 × 10⁶ m³/a at present (post-Akosombo dam). This sharp reduction threatened the stability of the east coast and prompted an expensive ($83 million) defence scheme to be implemented to protect 8.4 km-long coastline at Keta. Sections of Ghana's coast are closely connected to the hinterland through the fluvial sediment input from local rivers. Therefore, development in the hinterland that alters the fluvial sediment input from those local rivers could have significant effects on the coast. There is the need, therefore, to ensure that catchment management plans and coastal management plans are integrated or interconnected.     

地方性知识与空间治理——以苏州东山内圩治理为例

太湖流域水环境综合治理既是一项环境治理任务,也是一项空间治理工程,它涉及太湖沿岸土地利用方式的改变。以人类学家吉尔兹关于局外人对局内人地方性知识的语义理解为学术对话观点,以苏州东山内圩地区为研究区域,采用访谈法、资料分析法、对比法,寻找规划专家的科学知识与当地养殖户地方性知识的语义“原型”。研究发现：① “长度”是“合理规划养殖水塘”的语义“原型”。语义“原型”的发掘使专家在设计空间治理指标时,可采纳养殖户的地方性知识,也为养殖户理解空间治理指标、更新其地方性知识提供可能性。② 地方性知识不单由当地人创造,还在内外两类人群的互动中不断更新。在该过程中,准局外人发挥着知识对接的桥梁作用。当地人的地方性知识没有考虑宏观区域的可持续发展,而专家的全局视野会帮助当地人改进地方性知识。     

国土空间规划中陆海统筹的内在逻辑和深化方向——基于复合系统论视角

陆海统筹是海岸带地区国土空间规划编制的基本原则。在海岸带空间开发与保护中,人地（海）关系、区域空间关系、陆海关系相互交织、相互融合,具有显著的复合系统特征。基于陆海之间物质、能量、信息与要素的流动特征,构建了包含人地（海）关系、区域空间关系、陆海关系的海岸带复合系统,并将陆海统筹的实现转化为海岸带复合系统的协调过程。研究表明：海岸带复合系统协调受复合系统与外界之间和各个子系统之间物质、能量、信息与要素流动过程的影响深刻。因而,海岸带复合系统协调的关键在于系统结构与功能完善、系统空间位置调整和系统输出内容管控三个方面。在此基础上,进一步提出国土空间规划中深化陆海统筹的策略。     

A Geography of Place: principles and application for defining ‘eco-civic’ resource governance regions

River catchments have been the dominant form of regionalisation for natural-resource management in many countries since the 1980s. Local governments play a considerable role in planning with ever-increasing responsibilities for sustainable environmental management, planning and development controls. There has also been an increasing emphasis on community participation in resource management, which emphasises the need to re-examine the requirements for spatial definition of resource governance regions. This paper proposes three principles. First, the nature and reach of environmental externalities of resource use should determine the size and nesting of resource management regions. Second, the boundaries of resource governance regions should enclose areas of greatest interest and importance to local residents. Third, the biophysical characteristics of a resource governance region should be as homogenous as possible, which provides resource planning and management efficiencies. The paper describes a range of concepts and empirical techniques used to apply these principles to the derivation of a resource governance regionalisation of the State of New South Wales, Australia.     

Assessing participatory GIS for community-based natural resource management: claiming community forests in Cameroon

This paper critically reviews and analyses participatory GIS (PGIS) and participatory mapping applications within participatory spatial planning for community-based natural resource management in developing countries. There is an often implicit assumption that PGIS use is effective, in that it meets content needs, satisfies underlying local stakeholder interests and therefore is a tool for better governance. The analytical framework looks at participatory spatial planning performance with respect to key dimensions of governance, especially the intensity of community participation and empowerment, equity within communities and between 'governed' and 'governing', respect for indigenous knowledge, rights, ownership, legitimacy, and effectiveness. Specific development focus is given by a case study using participatory mapping and PGIS in community forest legitimization, planning and management in Tinto, Cameroon. 'Good governance' criteria are applied ex-post to the implementation procedures, the geo-information outputs, and the longer-term outcomes of the PGIS processes. Impacts of incorporating PGIS were examined in terms of the types and degrees of participation in the process; access to, and the uses made of, the geographic information; whether the information outputs met stakeholders' requirements; and the overall changes in equity and empowerment in the community. It was found that PGIS/participatory mapping processes contributed – positively, though not comprehensively – to good governance, by improving dialogue, redistributing resource access and control rights – though not always equitably – legitimizing and using local knowledge, exposing local stakeholders to geospatial analysis, and creating some actor empowerment through training. PGIS promoted empowerment by supporting community members' participation in decision-making and actions, and by enabling land use planning decisions beyond community forestry itself.     

13世纪以来中国海洋盐业动态演变及驱动因素

海洋盐业是中国海洋经济的重要部分,也是沿海传统产业之一,13世纪以来不断发展演变。将沿海分为北、东、南3个地带,搜集整理与海盐经济相关的多种历史文献及方志资料,运用地理学方法分析评估了海洋盐业百年尺度的动态演化过程,并比较了资源环境与管理政策的驱动作用及其差异。研究表明：① 沿海盐业表现为传统煎法长期主导、逐步废煎改晒的过程,不同盐区的演化进程存在显著差异,北部盐区最快,东部次之,南部整体发展缓慢;② 海盐生产重心长期位于东部的两淮盐区,19世纪后期向北部盐区快速迁移;③ 资源环境与生态差异促进了各岸段海盐生产演化分异,垄断性管理政策迟滞了海洋盐业的空间集聚进程,未来沿海开发与海洋盐业的可持续发展将主要依靠基于资源生态约束的管理政策与技术。     

Urbanisation and centralisation in Norway

The need for population data in regional analysis

Policies targeting regional areas have been a central part of the planning system in Norway, at least since the last war – as they have been in many countries and now even on the European level through the European Union (EU). These policies are dependent upon relevant data on different regional levels. Criteria reflecting population growth, distribution and structure, are often used in analyses, preceding concrete planning initiatives and economic redistribution measures.     

Black gold to green gold: regional energy policy and the rehabilitation of coal in response to climate change

Energy production has come under increasing scrutiny as concerns about energy security and climate change have risen. In the UK changes in government structure and privatisation of the electricity industry have led to the emergence of multi-level governance. This means that decisions on how to reduce carbon dioxide emissions from the electricity-generating sector should no longer be solely a national policy decision. Previous studies have sought to explore how renewable energy may develop under multi-level governance, but this paper pays attention to a traditional fossil fuel source, coal, which is still an important means of electricity generation. Coal is the most abundant fossil fuel and advocates argue that carbon capture and storage techniques could make coal 'clean', paving the way for a long-term, secure and low emission way to produce energy. This study focuses on the Yorkshire and Humber Region, which has had a long association with coal mining and looks at the implications of this as the region seeks to develop a climate change action plan and an energy strategy within the new regional governance structures. The paper argues that the regional networks developed to address climate change are influenced by existing social power structures and alliances. The region as a territorial structure becomes a useful device in promoting national priorities.     

TOURISM DEVELOPMENT ON VANCOUVER ISLAND: AN ASSESSMENT OF THE CORE-PERIPHERY MODEL *

This paper examines tourism development on Vancouver Island, B.C. in terms of the core-periphery approach to regional planning. It examines whether a core area (Victoria) is willing to share its tourism business with the rest of the island, and then focuses on the situation in a peripheral region (the Cowichan Valley Regional District–CVRD). A discriminant analysis of CVRD residents reveals they have different views regarding tourism's potential and future in their region. A follow-up analysis, reflecting a change in the scale of enquiry and local core-periphery conditions, shows residents'perceptions and priorities will change according to their respective area groupings. This analysis reveals that residents of a peripheral region, who are expected to participate in and welcome tourism development initiatives developed by senior levels of government, will in fact have different opinions regarding the industry and its potential. These differences are linked to present levels of tourism activity within the periphery and the varying community aspirations linking tourism's development potential with local needs and priorities.