| 摘要: |
| 基于尺度重构理论，国家级新区的设立及发展伴随着领域空间与权力尺度的动态调整与耦合。研究构建尺度重构与空间治理的分析框架，以重庆两江新区为例，分析尺度重构与空间治理模式的演进历程，认为其成立是国家及地方政府下放部分权力，将经济发展与开发建设等职能嵌入新国家空间，与属地行政区共同建立“直管”+“非直管”的空间治理格局，并通过“拓区”、“扩权”以及内部结构优化等方式来适应不同发展阶段的空间治理需求。分析重庆两江新区现状空间治理体系发现仍然面临问题，如空间发展理念需转变、空间治理主体多元但合力不足、空间治理对象碎片化、空间治理机制不完善等，使得空间治理效率还有待提升。从尺度重构视角提出空间治理展望：优化管理体制，分片区渐进式推进政区合一；完善协同机制，形成多元主体参与的空间治理体系；强化规划统筹，推动两江新区高质量发展。 |
| 关键词: 尺度重构 国家级新区 空间治理 重庆两江新区 区域协同 |
| DOI： |
| 分类号:TU984 |
| 基金项目: |
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| The Evolution and Prospects of Spatial Governance in National-level New Areas from a Rescaling Perspective —A Case Study of Chongqing Liangjiang New Area |
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Zhang Hongqiao, Qian Zihua, Zhou Mi
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Chongqing Planning and Design Research Institute
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| Abstract: |
| Since the establishment of the Shanghai Pudong New Area in the 1990s, China has approved 19 national-level new areas, which have evolved through gradual expansion, functional refinement, and spatial optimization. These areas now serve as pivotal engines for urban and regional economic development. The creation of national-level new areas involves the decentralization of administrative authority from central or local governments, forming streamlined governance structures to drive economic growth while establishing nested governance systems in collaboration with territorial governments. Crucially, the rescaling of national-level new areas is not an ultimate goal, but rather a dynamic process of mutual adaptation between continuously optimized scalar arrangements and governance systems. Current administrative models for national-level new areas are categorized into three categories: government-led, integrated administrative-economic zones, and administrative committee models. While government-led and integrated models demonstrate balanced competence in economic development and social governance, many committee-administered zones face challenges including fragmented governance actors, underdeveloped collaborative mechanisms, and suboptimal spatial governance efficiency. However, many management committee-led national-level new areas face significant spatial governance challenges. First, fragmented governance structures—characterized by dispersed stakeholders, underdeveloped collaborative mechanisms, insufficient coordination between management committees and external territorial governments, and weak internal integration of development platforms and industrial parks—result in low spatial governance efficiency. Second, the core mandate of national-level new areas, which prioritizes economic growth and rapid development, often leads to the preferential allocation of land for projects with quick market returns. This approach exacerbates issues such as uncoordinated urban development phasing, extensive land-use practices, lagging public service provision, scattered industrial spatial layouts, and insufficient industry-city integration. In the context of high-quality development imperatives, these areas urgently require institutional optimization through systematic review of governance evolution, rationalization of spatial governance frameworks, and establishment of polycentric collaborative mechanisms to construct modernized spatial governance systems.
As a representative committee-administered national-level new area, Chongqing Liangjiang New Area has undergone continuous territorial and administrative restructuring over its 15-year evolution. This study constructs an analytical framework integrating rescaling theory and spatial governance analysis to examine its developmental trajectory. The findings reveal that Chongqing Liangjiang New Area has progressed through four distinct developmental phases: (1) Pilot Decentralization (2001-2010): Local governments delegated partial administrative authority and embedded economic functions to establish a development zone. (2) National Upgrading (2010-2012): National and local governments further decentralized administrative powers, forming a streamlined management structure, while elevating its administrative hierarchy to achieve the status of a national-level new area; (3) Spatial Expansion (2013–2018): The new area expanded its geographic boundaries and administrative authority, transitioning from an industrial park to an integrated urban district; (4) High-Quality Restructuring (2019–present): The focus shifted to optimizing internal spatial governance systems to foster a high-quality development model.
This study identifies critical challenges in the spatial governance of Chongqing Liangjiang New Area. First, spatial development philosophies remain outdated, prioritizing economic growth over urban quality enhancement, with insufficient progress in transitioning from "zone construction" to "city building." Additionally, rural areas face ambiguous administrative jurisdictions in spatial governance, inadequate coordination in rural spatial planning, and a yet-to-be-enhanced driving effect of urban areas on surrounding rural regions. Second, despite multiple governance actors in planning, industrial development, and social affairs, collaborative mechanisms are underdeveloped, leading to fragmented coordination. Third, the vertical division of administrative authority and the separation of urban construction from social management have resulted in fragmented spatial development and suboptimal urban quality. Fourth, misaligned governance tools among stakeholders hinder regional synergistic development.
The study proposes the following strategies to optimize spatial governance in Chongqing Liangjiang New Area: First, as the new area matures, administrative-territorial integration should be progressively implemented across subdistricts to simplify governance systems, align development objectives with social management functions, and enhance efficiency. For instance, mature zones such as the directly-administered subdistricts and the Jiangbeizui area could pilot integration trials with neighboring administrative districts like Yubei District and Jiangbei District. Governance optimization policies could then be formulated based on operational outcomes. Second, a collaborative governance mechanism should be institutionalized through regular multi-stakeholder coordination. Establishing a provincial-level multi-stakeholder joint development task force would provide top-down institutional safeguards for intergovernmental coordination. This platform would facilitate consensus-building on development goals, joint formulation and implementation of major plans, and annual project scheduling, thereby creating a stable cooperative framework that balances diverse stakeholder interests. Third, comprehensive spatial planning must reconcile the governance dynamics between directly-administered zones and non-directly-administered zones. On the one hand, a comprehensive territorial plan should be scientifically formulated to coordinate development positioning, functional structures, and public services across the entire area, fostering synergistic growth among Jiangbei, Yubei, and Beibei districts. Concurrently, rural planning guidance must be strengthened by systematically cataloging rural resources around urban peripheries, designing high-quality tourism projects, and advancing integrated urban-rural development models that leverage urban advantages to drive rural revitalization. On the other hand, enhance integrated urban planning to proactively identify emerging challenges, establish a project-generation mechanism, and ensure orderly development through coordinated spatial strategies. |
| Key words: Rescaling National New Area Spatial governance Chongqing Liangjiang New Area Regional collaborative development |
