2024年第2期 DOI：10.19830/j.upi.2021.614
尺度重组视角下的德国跨区域治理实践及启示——基于莱茵-内卡大都市区的经验
Cross-jurisdictional Governance Practices and Implications from the Rescaling Perspective: The Case of Rhine-Neckar Metropolitan Region in Germany
颜思敏 王启轩 安娜·格罗韦
Yan Simin, Wang Qixuan, Anna Growe
关键词：区域治理；尺度重组；跨区域规划；德国莱茵- 内卡大都市区；区域协调发展
Keywords：Regional Governance; Rescaling; Cross-jurisdictional Planning; Rhine-Neckar Metropolitan Region (MRN) in Germany; Coordinated Regional Development
摘要：
德国莱茵- 内卡大都市区地处三州交界，有着近70 年的州际治理实践历史，被誉为德国跨域治理的典范，其经验可为我国跨省市区域治理提供启示。本文从尺度重组视角出发，梳理区域、跨区域治理经验，并聚焦具体案例，结合一手调研访谈和治理历程解析，剖析该大都市区跨区域治理过程中参与主体、治理工具和协作机制的转变。分析发现：莱茵- 内卡大都市区在治理主体方面，实现了政府主导下多元主体的协作共治；在治理手段方面，制定了具有法律地位的跨区域规划，将其较好地融入了德国空间规划体系，并配合市场、行政等手段进一步推动了区域交通、蓝绿基础设施和城乡住房供给等一体化项目的后续落实；在治理机制方面，构建了“战略—运营”双层治理框架，充分激发了政府和市场主体的能动性。最后，笔者结合德国经验探讨中国的跨区域空间（尤其是跨省界区域）治理问题，从界定主体权责、融入规划体系、重构治理网络三方面总结了政策启示。
Abstract：
The Rhine-Neckar Metropolitan Region (MRN), which is regarded as a model of German regional governance, features nearly 70 years of cross-state governance practices. Its experience can provide implications for the regional governance across provinces and cities in China. This paper reviews regional governance experience from the perspective of rescaling and focuses on an empirical case, MRN. Literature and interviews with key actors are drawn to support the analysis of the participating actors, governing instruments, and coordinating mechanisms in its rescaling process. The analysis results show that: (1) in terms of participants, the cross-jurisdictional governance in MRN has achieved diversified participants led by public sector; (2) in terms of governance instruments, a regional integration plan with legal status has been developed, which is well integrated into the German federal planning system and, together with market and administrative means, ensures the subsequent development of related projects (e.g., regional transportation, blue-green infrastructure, and urban-rural housing supply); (3) in terms of governance mechanism, a two-tier “strategic-operational”networked governance framework has been built, which fully stimulates the dynamism of administrative and market actors. In addition, we also discuss the governance of comparable regions in China in the light of the existing German experience and summarize the policy implications concerning the clarification of the rights and responsibilities of participants, the integration into the planning system, and the reconstruction of the governance network.
版权信息：
基金项目：国家留学基金国家建设高水平大学公派研究生（攻读博士学位）项目（202006260018）
作者简介：
颜思敏，德国海德堡大学化学与地球科学学院地理研究所，博士研究生。simin.yan@stud.uni-heidelberg.de
王启轩（通信作者），同济大学建筑与城市规划学院，博士研究生。wqx3@qq.com
安娜·格罗韦，博士，德国卡塞尔大学建筑、城市规划和景观规划学院城市发展系，教授，博士生导师；区域发展经济工作组负责人。anna.growe@uni-kassel.de