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        趙孟營:超大城市是一種新型的城市共同體

        時間:2019-02-25 16:53:00  來源:北京日報 中國前沿資訊網  作者:趙孟營

        ——超大城市的政府與公眾的關系、公共事務、公共輿論具有與常規城市不同的特征

          2014年國務院發布的《關于調整城市規模劃分標準的通知》中,第一次明確把城區常住人口1000萬以上的城市歸類為超大城市。超大城市概念的提出時間雖然不長,但是作為全新的共同體形式,超大城市呈現的運行獨特性已經較為明顯。

          首先,超大城市的政府與公眾的關系具有超前意義上的獨特性。

          這種獨特性來自于兩個方面的結構性矛盾:一方面,超大城市的政府責任邊界超越了任何一般意義上的城市行政區。因為超大城市經濟社會發育水平在國家發展中處在領先地位,國家要求超大城市承擔支持其他相對落后地區發展的義務,所以超大城市政府所管理和服務的“公眾”既包括城市及周邊地區居民這樣的“直接”管理和服務對象(當然,其實還有在本城活動的非本城居民),還包括許多“遙遠”地區居民這樣的“間接”管理和服務對象。另一方面,超大城市政府的行政權力邊界依然保留在常規意義上的行政區域內,它既不能向“遙遠”地區的間接管理和服務對象收稅,也不能調度他們的生活軌跡。這兩個方面形成的結構性矛盾導致了超大城市的政府與公眾關系面臨著與常規城市不同的難題:如何既要做到確保“直接”公眾能夠支持一個削減自身利益的政府,又要做到確保“間接”公眾能夠滿意一個對其沒有行政權力的政府。

          其次,超大城市的公共事務特別是民生領域的公共事務具有超前意義上的獨特性。

          基于前述超大城市政府和公眾關系的獨特性,就使得超大城市的公共事務特別是民生領域的公共事務具有與常規城市不同的新特征。這種新特征概括起來就是責任主體的有限性和服務客體的無限開放性之間的結構性矛盾。一方面,超大城市的公共事務的責任主體與常規城市相似,主要是政府和少量的非政府的社會力量(包括企業、部分非企業社會組織),因此公共事務的投入和管理是有限的。另一方面,因為超大城市的超前發育,它的公共事務必須要向幾乎無限的客體開放(如優質教育資源不僅要向戶籍居民開放,而且要向無戶籍的居民開放,其他方面也是如此)。這兩個方面形成的結構性矛盾導致了超大城市的公共事務面臨著常規城市所沒有的難題:如何既要保證有限的投入和管理能夠支撐超大城市內部正常運行,又要確保無限開放性客體有效分享超大城市公共事務的便利。

          最后,超大城市的公共輿論具有超前意義上的獨特性。

          基于前述政府與公眾關系的獨特性、公共事務的獨特性,使得超大城市的公共輿論具有與常規城市不同的新特征。超大城市的各個領域各個方面都具有強烈關注度,超大城市的高度開放性又使得這種關注從可能轉變為現實,因此超大城市的公共輿論有著無限開放的主體:既有國際主體又有國內主體、既有政府主體又有不同利益群體主體、既有組織主體又有居民個人主體等等,這些主體立場不同、觀點不同、視野不同、判斷不同,使得超大城市的任何一個公共事件,都有可能引發不同輿論主體之間的爭論、對立,甚至形成公共輿論風暴。

          上述三種公共話題獨特性相互關聯、相互影響、相互交織,在全景意義上形成了超大城市的前沿狀態,充分顯示了超大城市的確是一種新型的城市共同體,它具有不同于以往任何一種共同體的特性。面對這樣新型的城市共同體,只有從系統、綜合、整體的視角出發研究其治理定位和治理邏輯,才能夠有效解決超大城市發展所面臨的各種難題。

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