江璇 孙洁 耿慧志

JIANG Xuan, SUN Jie, GENG Huizhi

全面实施城市更新是我国当前的重点工作。街道办事处在城市更新行动中承担着贯穿全流程的复杂任务，但往往面临“弹性限度难把控，刚性要求难落实”的难题。笔者以南京市秦淮区的3 个街道、9 个项目的更新实践为例，对街道办事处“刚弹失调”治理困境的表现形式、内在原因和解决路径展开探究。笔者认为：“弹性失调”表现为自由裁量风险高，解释协调任务重，“刚性失调”表现为方案编制限制多，实施推进效率低；从政治沟通理论的视角看，此困境可归因于街道层级政府作为“沟通渠道”和“解释主体”两种角色的同一性与对立性失衡。对此笔者建议：对于“弹性失调”问题，需强化“解释主体”，加强街道办事处行政自主权，建立容错机制，进行技术赋能和组织赋能，减轻下派任务并促进合作共治；对于“刚性失调”问题，需强化“沟通渠道”，确立多方沟通载体，细化政策细则与技术标准，明确强制性和规范性措施。

Urban regeneration is currently a key task in China. Sub-district offices undertake complex work throughout the entire process of urban regeneration projects. However, they often fall into a dilemma which we call it as “rigidity-flexibility disorder”. In this paper, we did a field work in Qinhuai District of Nanjing,which made deep interview with local executive officers in three sub-district governments and through nine different urban renewal projects, and analyzed the manifestations, causes and solutions of this dilemma. The main conclusions are as follows. Firstly, when the governance flexibility is excessive, sub-district offices have been in a high risk of discretion in decision-making, and it is also busy to explain and coordinate with multiple stakeholders; when the governance is too rigid, sub-district offices also encounter restrictions in plan-making, resulting in low efficiency in accomplishing any renewal projects. Secondly, from the perspective of political communication theory in western politics, the “rigidity-flexibility disorder” is rooted in the imbalance between the opposition and the unity of roles both as a “communicator” and “explainer” that sub-district offices play. In this regard, this paper provides some policy implications. When dealing with flexibility policy, sub-district offices should play the role of “explainer”. It is necessary to strengthen the administrative autonomy of sub-district offices in urban regenaration issues, to set up a fault-tolerant mechanism, to provide technical support and approval in organization. Also, it needs to ease the tasks from superior government to promote governance cooperatively. When pursuing rigid policy, sub-district offices should play the role of “communicator”. It ought to establish effective means of communication between different stakeholders, to specify rules and technical standards in rebuilding, and to clarify mandatory and normative measures.

江璇，同济大学建筑与城市规划学院，博士研究生。jiangxuansn@163.com

孙洁（通信作者），博士，南京大学建筑与城市规划学院，南京大学中产化研究中心，副研究员。jiesun@nju.edu.cn

耿慧志，同济大学建筑与城市规划学院，教授，博士生导师。genghuizhi@163.com

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