| 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：10.13791/j.cnki.hsfwest.20240919002 |
| 分类号: |
| 基金项目:重庆市技术预见与制度创新专项项目（cstc2019jsyj-zzysbAX0015） |
|
| The evolution and prospects of spatial governance in national-level new areas from arescaling perspective: A case study of Chongqing Liangjiang New Area |
|
ZHANG Hongqiao,QIAN Zihua,ZHOU Mi
|
| 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 nationallevel
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 committeeadministered
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 g湯慶瑥敲?摡敮癣敥氬漠灩浮敡湤瑥?灵潡獴楥琠楣潯湯楲湤杩??晴畩湯据琠楩潮渠慲汵?獡瑬爠畳捰瑡畴物敡獬??慬湡摮?灩畮执氬椠捡?獤攠牡瘠楹捥整猭?慯挭牢潥獥獮?瑡桮散?敤渊瑤楲物敶?慮牧攠慥??晥潣獴琠敯牦椠湵杲?獡祮渠敡牲来楡獳琠楯据?杳牵潲睲瑯桵?慤浩潮湧朠??楲慡湬朠扲敥楧??奮畳戮攠楓??慯湮摤??敤楥扳数楩?摥椠獭瑵牬楴捩瑰獬???潯湶捥畲牮牡敮湣瑥氠祡??牯畲牳愠汩?瀠汰慬湡湮楮湩杮?本甠楩摮慤湵捳整?浩畡獬琠?扥敶?獬瑯牰敭湥杮瑴栬攠湡敮摤?扳祯?獩祡獬琊敡浦慦瑡楩捲慳氬氠祣?捬慬瑡慢汯潲条楴湩杶?爠畭牥慣汨?牮敩獳潭畳爠捡敲獥?慵牮潤略湲摤?當牥扬慯湰?灤攬爠楬灥桡敤物楮敧猠??搠敦獲楡杧湭楥湮杴?桤椠杣桯?煲畤慩汮楡瑴祩?瑮漮甠牔楨獩浲?瀬爠潴橨敥挠瑶獥??慩湣摡?愠摤癩慶湩捳楩湯杮?楯湦琠敡杤牭慩瑮敩摳?畲牡扴慩湶?爠畡牵慴汨?摲敩癴敹氠潡灮浤攠湴瑨?洊潳摥数污獲?瑴桩慯瑮?汯敦瘠敵牲慢条敮?畣牯扮慳湴?慵摣癴慩湯瑮愠杦敲獯?琠潳?摣物楡癬攠?牡畮牡慧汥?牥敮癴椠瑨慡汶楥稠慲瑥楳潵湬??佤渠?瑮栠敦?潡瑧桭敥牮?桥慤渠摳??整湩桡慬渠捤敥?楥湬瑯数杭牥慮瑴攠摡?畤爠扳慵湢?灰汴慩湭湡楬渠杵?瑢潡?瀠牱潵慡捬瑩楴癹攮氠祆?極摲整湨琬椠晭祩?敡浬敩牧杮楥湤朊?捯桶慥汲汮敡湮杣敥猠??敯獬瑳愠扡汭楯獮桧?慳?灡牫潥橨敯捬瑤?杲敳渠敨物慮瑤楥潲渠?浥敧捩桯慮湡楬猠浳??慥湲摧?敳湴獩畣爠敤?潶牥摬敯牰汭祥?摴攮癔敨汥漠灳浴敵湤瑹?瑰桲牯潰畯杳桥?挠潴潨牥搠楦湯慬瑬敯摷?獮灧愠瑳楴慲污?獥瑧物慥瑳攠杴楯攠獯ptimize 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-directlyadministered
zones. On the one hand, a comprehensive territorial plan should be scientifically formulated to coordi |
| Key words: rescaling national-level new area spatial governance Chongqing Liangjiang New Area regional collaborative development |
