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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.
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(1) 2021年10月-2022年1月，笔者就莱茵-内卡大都市区区域治理涉及的主体、工具和机制，以及面临的机遇、挑战和建议等，对大都市区内不同政府层级（区域、子区域、市镇）的相关负责人进行了半结构化访谈，文中部分观点引自访谈记录。
(2)德语Metropolregion最早出现在1990年代的德国区域政策文件中，英文可译作metropolitan region，本文将其译为“大都市区”。区别于强调空间范围的metropolitan areas，德语Metropolregion更强调有政治合作（politische Zusammenarbeit）的区域。
(1)因为当时还缺乏针对跨区域机构的公法认定，“莱茵-内卡市政工作小组”（KAG）使用的是有限责任公司的法律形式。然而，这种公司化治理机构很快被证明不适合区域规划相关的约束性协议的签署和实施[46]。
(1)依据2021年10-11月笔者对克里斯托夫·特里梅尔先生（Christoph Trinemeier，莱茵-内卡区域发展联合会常务董事和区域规划负责人）的访谈记录。
(2)德语Einheitliche的英文可译作standardized或unitary，意为将空间上（parts）和标准上（rules）不同的规划部分整合到一个统一的整体规划中，与中文规划语境下的“一体化规划”相近，故作此翻译。
(1)依据德国空间研究与州规划学术机构（ARL:Akademie für Raumforschung und Landesplanung）的专有名词翻译，德语Gegenstromprinzip一词的英文译作mutual feedback principle，笔者将其译作“互反馈原则”（或“抵消影响原则”）。这是载入《联邦空间规划法》中的一项原则，据此，地方、区域和超区域规划与其他级别的规划相互影响，以确保次区域因发展、构建和保护领土而采取与整体条件、要求相一致的行动，反之亦然，即发展、构建和保护整体领土的行动也应考虑次区域的条件和要求。
(2)依据2021年11月笔者对克劳斯·佩内曼博士（Dr.Claus Peinemann，莱茵-内卡区域发展联合会地区顾问、黑森分部负责人）的访谈记录。
(1)依据2021年11月-2022年1月笔者对汉斯·斯卡克先生（Hans Skarke，曼海姆市政府城市发展部门工作人员）的访谈记录。
基本信息:
DOI：10.19830/j.upi.2021.614
中图分类号:TU984
引用信息:
[1]颜思敏,王启轩,安娜·格罗韦.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[J].国际城市规划,2024,39(02):20-31.DOI:10.19830/j.upi.2021.614.
基金信息:
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）
2022-06-21
2022-06-21
2022-06-21