不完全的再领域化与大都市区行政区划重组——以南京市江宁撤县设区为例

从再领域化的理论视角对南京市江宁撤县设区的大都市区行政区划调整进行实证研究。研究重点关注城市和政府两类领域机构,从行政区划调整过程、行政区划调整对城市发展的影响和行政区划调整中的权力斗争三个方面进行分析。研究发现城市空间重组是一个渐进过程,江宁通过撤县设区和撤乡镇设街道两种方式,正在逐步从县域经济向城区经济转型。撤县设区后,江宁城市和经济快速发展,这主要是由于再领域化后江宁相对独立的经济和政治地位。但是,在江宁的再领域化中,政府领域重构并未伴随着城市空间的产生而出现,原县的管理体制在很大程度上仍然得以保留。在新的城市空间中出现了新市—区两级政府管理与原市—县—镇三级政府管理并行的体制。因此,江宁的再领域化是一种不完全的再领域化过程。这也是造成市—区两级政府权利冲突的制度根源。

Administrative boundary re-organization in Nanjing metropolitan region

In today's globalizing age, cities and regions have experienced intensive restructuring in the world, giving rise to deterritorialization and reterritorialization. From the perspective of reterritorialization, this study investigates administrative boundary re-organization in Nanjing metropolitan region, using the case of Jiangning's abolishing county and designating district.According to the theory of territorial restructuring, this study focuses on two territorial organizations-city and state, investigating the process of administrative boundary re-organization, impacts of reterritorialization on urban development and power struggle in administrative boundary adjustment in Nanjing and Jiangning. We argue that territory restructuring is a gradual process in Nanjing metropolitan region, involving abolishing county and designating district and annexation of towns and townships into street offices. Through these administrative boundary adjustments, Jiangning is transforming from a county economy to a city economy. Its economy grows dramatically and the built-up area is extending rapidly after the administrative boundary adjustment. This is due to the independent economic and political status of Jiangning after reterritorialization to a large degree. However, with the restructuring of city space, there is little change in another territorial organization-state. Jiangning district still possesses the former county's administrative system and power. In the new city space, the new administrative system (two-layer governments-city and district) and the old administrative system (three-layer governments-city-county-town/township) co-exist. Therefore, Jiangning's reterritorialization is an incomplete process of reterritorialization due to the lack of state restructuring. Such incomplete reterritorialization causes intensive interest conflicts between city government and district government, especially in urban planning, public transportation and land use, etc. The findings of this study will shed light on other metropolitan administrative boundary re-organizations, and have important policy implementations for improving metropolitan governance.