西部人居环境学刊2026，Vol.41Issue(3)：17-24,8.DOI:10.13791/j.cnki.hsfwest.20260505001
从空间改造到综合治理:面向城市更新的城中村政策演进研究
From space reconstruction to comprehensive governance:Policy evolution of urban villages in the context of urban renewal
摘要
Abstract
Against the backdrop of China's urban development shifting from incremental expansion to the improvement and optimization of existing urban spaces,and with urban renewal having been elevated to a national strategy,the governance of urban villages has become a critical area for revitalizing existing urban land and space resources,meeting the housing needs of new urban residents,and advancing the modernization of grassroots governance.To systematically examine the policy logic and evolutionary trajectory of national-level urban village governance,this study takes 77 central government policy documents on urban village governance issued between 2006 and 2025 as its sample.It constructs a three-dimensional analytical framework encompassing governance strategy,governance tactics,and policy orientation,and employs policy text quantification,word-frequency analysis,and semantic clustering methods to systematically investigate the thematic structure,policy instrument configuration,and stage-specific evolutionary characteristics of these policies.The study further reveals the practical foundations and driving mechanisms underlying policy formation and proposes pathways for policy optimization.The study shows that China's urban village governance policies have now developed into a relatively comprehensive and well-structured policy framework.The governance tactics dimension exhibits a dual-core structure driven by support mechanisms and infrastructure development.While housing security,industrial development,and living environment improvement have progressed simultaneously,cultural heritage preservation,accounting for only 2.19%of policy content,has remained a longstanding weak link.The governance strategy dimension has evolved into a balanced tripartite structure consisting of governance models,development goals,and key stakeholders.While it highlights multi-actor collaboration and aligns with the objectives of new-type urbanization,soft governance goals,such as social integration and cultural identity formation,remain significantly underemphasized.The policy orientation dimension exhibits a structural imbalance,with guidance-oriented policies accounting for a dominant 68.85%,regulatory policies serving as a safeguard mechanism at 19.13%,and incentive-based policies remaining significantly underrepresented at only 12.02%.The three-dimensional intersection of governance tactics,governance strategies,and policy orientation reveals that the absence of mandatory policies in the field of public services has weakened the institutional guarantees for public welfare.Moreover,urban village governance policies have long exhibited a path dependence on an engineering-oriented approach that prioritizes physical and spatial redevelopment while neglecting cultural heritage preservation and community identity.Urban village governance has evolved through a progressive three-stage process consisting of the exploratory and coordination stage,the systematic transformation stage,and the comprehensive enhancement stage.Across these stages,governance practices have gradually shifted from sporadic interventions and large-scale demolition and reconstruction toward integrated regeneration,differentiated policy implementation,and refined urban renewal.Meanwhile,the policy framework has become increasingly comprehensive,and the focus of governance has evolved from the provision of basic safeguards to the improvement of infrastructure and public services,institutional innovation,and multi-stakeholder collaboration.Specifically,from 2006 to 2014,urban village governance was characterized by an exploratory and coordination phase.Policy support remained limited and was dominated by government-led large-scale demolition and redevelopment projects,with a primary focus on maintaining social stability and protecting residents'rights and interests.The principal drivers of this stage included rapid urbanization,urban-rural structural disparities,and the land-finance-oriented development model.From 2015 to 2021,urban village governance was in a phase of systematic transformation.The policy system became increasingly comprehensive and shifted toward integrated regeneration and infrastructure upgrading.The proportion of guidance-oriented policies increased to 71.43%,while incentive-based policies appeared for the first time.At the practical level,many cities advanced area-wide renewal programs and financing innovations.The principal drivers of this stage included the transition to stock-oriented urban development,the launch of urban renewal initiatives,and changes in demographic structure.Since 2022,urban village governance has entered a phase of comprehensive enhancement.Governance has moved toward a stage of refined and quality-oriented development,characterized by differentiated policy implementation,digital empowerment,and industrial transformation.Policies place greater emphasis on high-quality development and multi-stakeholder co-governance.However,soft governance dimensions,such as cultural heritage preservation and social integration,remain relatively underdeveloped.Although governance capacity has continuously improved,all stages have been characterized by recurring imbalances,including prioritizing physical development over humanistic values,physical transformation over social integration,and guidance-oriented instruments over incentive-based mechanisms.Consequently,urban village governance policies have not yet undergone a fundamental transition from an engineering-centric approach to a governance-oriented paradigm.Based on these findings,this study proposes four policy recommendations:strengthening cultural governance and community identity;rebalancing policy instruments through enhanced incentive and benefit-sharing mechanisms;reinforcing mandatory public service provision in areas such as elderly care,education,and healthcare;and coordinating spatial regeneration,industrial upgrading,social governance,and cultural preservation within an integrated governance framework.These measures are intended to facilitate the transition of urban village governance from a redevelopment-centered approach to an inclusive,balanced,and sustainable model of comprehensive governance,thereby providing theoretical and policy support for high-quality urban renewal in the new era.关键词
城市更新/城中村/政策演进/政策文本分析/综合治理/存量空间Key words
urban renewal/urban villages/policy evolution/policy text analysis/comprehensive governance/stock space分类
建筑与水利引用本文复制引用
张园林,张若曦,张伟钧..从空间改造到综合治理:面向城市更新的城中村政策演进研究[J].西部人居环境学刊,2026,41(3):17-24,8.基金项目
厦门市自然科学基金项目(3502Z202473024) （3502Z202473024）
中央高校基本科研业务费专项资金项目(20720250113) （20720250113）
