基于“情境—结构—行为—结果”分析的上海市低效工业用地减量化治理

探索低效工业用地减量化治理对优化土地资源利用格局、促进产业升级和城市高质量发展具有重要意义。在分析低效工业用地治理复杂系统特征的基础上,建构“情境—结构—行为—结果”分析框架,以超大城市上海市为例,采用扎根分析方法,揭示减量化过程和运行机理。结果显示：（1）低效工业用地减量化具有规划限制性、公共利益性和乡村嵌入性特征,由外部环境、用地效益、主体角色和减量化治理共同构成“外缘—内核”式的复杂适应系统。（2）建设用地“天花板”刚性约束下的宏观资源—环境—发展压力与微观用地效益是减量化的外部情境;内源性主体治理能力不足与外源性主体基于公共利益主动介入共同构成基于价值共享的治理结构;刚性政策、激励政策和支持政策形成了“三元互补”系统推动了集体行动;结果则呈现出城市高质量发展与资源再配置的协调,而平衡生态保护与经济发展、解决减量化短期压力将成为持续开展减量化的重点与难点。研究结果可为长三角其他城市开展低效工业用地治理提供经验和案例的借鉴。

Using "Situation-Structure-Implementation-Outcome" framework to analyze the reduction governance of the inefficient industrial land in Shanghai

Inefficient and idle industrial land governance, also known as "brownfield" redevelopment, is one of the important contents of urban renewal in the post-industrialization period in the Western countries. Shanghai became the pilot city in China to fully implement the reduction governance of inefficient industrial land in 2013, taking the lead in launching a new high-quality development path from incremental expansion of land resources to the reduction of inefficient land. In 2015, China's 13th Five-Year Plan (2016-2020) officially made inefficient construction land reduction governance a national strategy. Beijing, Guangzhou and cities in the Yangtze River Delta (YRD) have begun to explore this practice. Under the background of the YRD's transition from incremental expansion to stock renewal, it is of great significance to explore inefficient industrial land reduction governance, improve the efficiency of land use to optimize the pattern of land resource utilization, and promote industrial upgrading and high-quality urban development. This paper analyzes the characteristics of the complex system of inefficient industrial land governance, constructs a policy process analysis framework of "Situation-Structure-Implementation-Outcome", and takes the mega-city of Shanghai as an example to reveal the action process and operation mechanism of reduction using Grounded Theory Methodology. The results show that: (1) The reduction of inefficient industrial land is characterized by planning restriction, public interests and rural embeddedness. The complex adaptive system of "outer edge-inter core" is composed of external environment, land use effect, principle role and reduction governance. (2) The resource, environment, development pressure in a macro perspective, as well as land use effect in a micro perspective, under the rigid ceiling constraint of "construction land", are the external scenarios of reduction. The lack of governance capacity of endogenous subjects and the active intervention of exogenous subjects based on public interests jointly constitute a governance structure based on value sharing. Rigid policy, incentive policy and supportive policy form a "triple complementarity" system to promote collective action. The results show the coordination between high-quality urban development and resource reallocation. Balancing ecological protection and economic development and relieving the short-term pressure of reduction will become the focus and a tough task for Shanghai to continue the governance of reduction. This research provides experiences and case study for other cities in the YRD region in inefficient industrial land reduction.