چرا منطقه کلان‏شهری تهران به نظام مدیریت و حکمروایی ویژه منطقه‏ای نیاز دارد

نوع مقاله : مقاله پژوهشی

نویسنده

استادیار گروه شهرسازی، دانشکده هنر و معماری، دانشگاه مازندران، بابلسر

چکیده

از سال 1374 که اولین­بار الزام اتخاذ رویکردی منطقه‏ای در قبال مناطق کلان‏شهری کشور در قالب تهیه طرح‏های مجموعه‏شهری و پیشنهاد ایجاد نظام‏های مدیریت متناظر با آنها مطرح شد، درباره عقلانیت بنیادین نظام‏های مدیریت و حکمروایی کلان‏شهری مطالعه‏ای مستقلی صورت نگرفته است. سوال اصلی این مقاله درباره استدلال‏هایی است که می تواند موجه‏کننده و مبیِّن منطقه‏گرایی کلان‏شهری در تهران باشد. بر اساس مرور استدلال‏هایِ سه نظریه اصلی مرتبط با موضوع (منطقه‏گرایی سنتی، انتخاب عمومی و منطقه‏گرایی نوین)، پنج قضیه و استدلال اصلی موجه‏کننده منطقه‏گرایی کلان‏شهری مورد بحث قرار گرفته و کفایت هر یک با توجه به بافتار خاص منطقه کلان‏شهری تهران مورد تحلیل قرار گرفت. روش تحقیق استفاده شده در بخش‏هایی از کار که به ارزیابی کفایت استدلال‏های نظری در بافتار تهران می‏پردازد، بازنگری تحقیق و فراتحلیل، و در مورد ارائه شواهد تفصیلی برای استدلال پنجم، که به نظر عقلانیت مبنایی برای تبیین منطقه‏گرایی کلان‏شهری به حساب می‏آید، روش تحلیل داده‏های ثانویه است. بر اساس یافته مقاله حاضر، زمینه‏سازی برای«افزایش ظرفیت برخورد استراتژیک با مسایل منطقه‏ای و ارتقای اثربخشی سیاستی»، نیرومندترین استدلال برای تبیین عقلانیت ایجاد ساختارهای ویژه مدیریت و حکمروایی منطقه‏ای در تهران است.

کلیدواژه‌ها


عنوان مقاله [English]

Why does Tehran Metropolitan Region (TMR) Need a Specific Regional Governance?

نویسنده [English]

  • Iradj Asadie
Assistant Professor, Department of Urban and Regional Planning, Faculty of Art and Architecture, University of Mazandaran, Babolsar, Iran.
چکیده [English]

Mega city-regions or Metropolitan regions- that was introduced for the first time in a Cabinet article in 1995- are becoming a dominant form of human settlements both in developed and developing countries. Despite of all contentious discussion on economic and demographic significance of metropolitan regions and so rationality of establishing a distinct structure for their effective management and governance, there are a few institutions and governmental structures for effective metropolitan planning and governance. The main questions of present paper are: A. what are the economic, social, political and environmental rationality for establishing a specific structure or process for management and governance of metropolitan regions? B. What is the most important factor for explaining rationality of regionalism in Tehran metropolitan region? According to literature review there are five arguments for explaining metropolitan regionalism: a. efficiency argument (economic rationality), b. strategic planning and effectiveness argument (planning rationality), c. democracy argument (political rationality), d. equity argument (social rationality) and, e. competitiveness argument (economic rationality). present paper  argue , by referring to study of spatial and political structure of Tehran Metropolitan Region(TMR); three range of theories in metropolitan regionalism namely old regionalism, public choice and new regionalism, and also best practices in the field, that the most important argument on explaining rationality of metropolitan regionalism in TMR is arguments on enhancing policy effectiveness and creating strategic capacity dealing with regional environmental problems achieved by creating spatial strategic planning framework. Present research argues that the most challenging environmental regional problem in TMR is sprawl. For doing detail research on this aspect, main theories presenting relationship between political fragmentation and sprawl was reviewed. Research findings resulted from examination of spatial trends of regional growth in TMR confirm main sections of theoretical frameworks derived from works of known researchers in the fields. According to these theoretical frameworks, in the condition of political fragmentation, spillover growth always leaks from central and big cities (with exclusionary planning and lack of affordable housing) to unincorporated areas without growth control and cheap land available for development, the areas have great accessibility to major service centers. After a while and due to concentration of population in unincorporated area, these centers get incorporated and established municipality and growth control power. In the new established condition, spillover growth finds these new areas not desirable for development for their relative high cost and constraint on development comparing to unincorporated outer fringe. Control of this process of sprawl which works in a cyclic manner and also carrying out growth management will not be possible in the condition of political fragmentation in which there is not any body for coordinated regional spatial planning. Accordingly, the mission of any kind of regional body must be regional growth management. Therefore, metropolitan regionalism (in the meaning of establishing specific structure for metropolitan governance) in TMR is mainly explained by referring to rationality of regional growth management (guiding growth and coping with region-wide sprawl), the mission which is impossible in the condition of political and functional fragmentation.
 
 

کلیدواژه‌ها [English]

  • Tehran Metropolitan Region
  • Regionalism
  • urban sprawl
  • Metropolitan Governance
اسدی، ایرج و زبردست، اسفندیار (1392)، تحلیل الگوهای پراکنده‏رویی شهری در منطقه کلان‏شهری تهران: با تاکید بر اثرات تفرق نظام تصمیم‏گیری و کنترل رشد، دو فصلنامه نامه معماری و شهرسازی، سال ششم، شماره 11 ، صص89 -105.
اسدی، ایرج (1389)، تبیین عقلانیت منطقه‏گرایی کلان‏شهری در تهران، عنوان رساله دکتری شهرسازی با راهنمایی دکتر اسفندیار زبردست، پردیس هنرهای زیبا، دانشکده شهرسازی، دانشگاه تهران.
آخوندی، عباس و طاهرخانی، حبیب (1389)، نظام مدیریت و کنترل ساخت وسازهای روستایی در ایران: مشکلات و راهکارها، ارائه شده در اولین کنفرانس بین المللی سکونتگاه‏های روستایی: مسکن و بافت، اردیبهشت 1389، بنیاد مسکن انقلاب اسلامی.
آخوندی، عباس (1389)، مصاحبه نگارنده با دکتر عباس آخوندی در موضوع علل شکل‏گیری و ماهیت منطقه‏گرایی کلان‏شهری در ایران.
مرکز مطالعات و تحقیقات شهرسازی و معماری ایران(1379)، طرح مجموعه شهری تهران و شهرهای اطراف آن، گزارش نهایی شماره 3: شرایط تحقق طرح.
مرکز مطالعات و تحقیقات شهرسازی و معماری ایران (1378)، طرح مجموعه شهری تهران و شهرهای اطراف آن: خلاصه گزارش مطالعات اجتماعی طرح مجموعه شهری تهران، وزارت مسکن و شهرسازی.
مرکز مطالعات وتحقیقات شهرسازی و معماری ایران (1380)، طرح مجموعه شهری تهران و شهر های اطراف آن: گزارش به شورای عالی شهرسازی و معماری ایران، وزارت مسکن و شهرسازی.
معاونت امور دهیاری‏ها (1389)، آمار مجوزهای تاسیس دهیاری‏های کشور تا دی ماه 1389، دفتر مطالعات و برنامه‏ریزی روستایی، سازمان شهرداریها و دهیاری‏های کشور.
Altshuler, A; Morrill, W; Wolman, H; Mitchell, F(ed.)(1999), Governance and Opportunity in Metropolitan America, National Academies Press, Washington, D.C.
Barlow, I. Max. (1991), Metropolitan Government, Rutledge, London and New York.
Bevir, M (2007) Encyclopedia of Governance, University of California, Berkeley, USA
Byun, P & Esparza, X. Adrian (2005), A Revisionist Model of Suburbanization and Sprawl: The Role of Political Fragmentation, Growth Control, and Spillover, Journal of Planning Education and Research, No.24, pp. 252-264.
Carruthers, J & Ulfarsson, G (2002), Fragmentation and sprawl: Evidence from interregional analysis, Growth andChange, No.33, pp. 312-340.
Dente, B (1990), Metropolitan Governance Reconsidered, or How to Avoid Errors of the Third Type, Governance: An International Journal of Policy and Administration, Vol.3, No.1, pp. 55-74.
Green, A. Harry (1977), Urban Management and Efficiency: A Systems Perspective, International Review of Administrative Sciences, Vol.43, pp.  242-250.
Hall, P (2001), Global City-regions in the Twenty- first Century,In in Scott .A(ed.), Global City- Region: Trends, Theory, Policy, Oxford Press, Oxford.
Hamilton, K. D (1999), Governing Metropolitan Areas: Response to Growth and Change, Garland Publishing, Inc, New York and London.
Heinelt, H and Daniel, K (ed.) (2005), Metropolitan Governance: Capacity, democracy and the dynamics of place, Routledge, London and New York.
Henton, D (2001), Lessons from Silicon Valley: Governance in Global City- Regions, in Scott .A, Global City- Region: Trends, Theory, Policy, Oxford Press, Oxford.
Heywood, Philip R (1997), the Emerging Social Metropolis: Successful Planning Initiatives in Five New World Metropolitan Regions, Progress in Planning, 47(3), 159-241
House of Commons (Communities and Local Government Committee) (2007), Is There a Future for Regional Government? Fourth Report of Session 2006–07, London, The Stationery Office Limited, Metropolitan Toronto.
Keating, M (2001), Governing City and Region: Territorial Restructuring in a Global Age, in Scott .A(ed.), Global City- Region: Trends, Theory, Policy, Oxford Press, Oxford.
Keating, M (1995), Size, Efficiency and Democracy: Consolidation, Fragmentation and Public Choice, in Judge. D, Stoker. G and Wolman, H (eds.), Theories of Urban Politics, Sage Publication, Oxford Press, Oxford.
Meijers, E. J; Romein, A & Hoppenbrouwer, E. C (2003), Planning Polycentric Urban Regions in North Europe: Value, Feasibility and Design, DUP Science, Delft University Press.
Morgan, R. David & Mareschal, P (1999), Central-City/Suburban Inequality and Metropolitan Political Fragmentation, Urban Affairs Review, Vol. 34, No. 4, pp. 578-595.
Ostrom, E (1972), Metropolitan Reform: Proposition Derived from Two Traditions, Social Science Quarterly, 53, pp. 474-493.
Ostrom, V; Charles, T & Robert, W (1961), the Organization of Government in Metropolitan Areas: A Theoretical Inquiry, American Political Science Review, Vol. 55, pp. 831-842.
Pasione, M (2001), Urban Geography: A global perspective, Rutledge, New York
Pastor, Jr & Manuel Dreier, P & Grigsby, E & Lopez-Garza, M (2000), Regions That Work: How Cities and Suburbs Can Grow Together, University of Minnesota Press, Mineapolis,MN.
Porter, E. Michael (2001), Regions and the New Economics of Competition, in Scott, A (ed.) Global City – Region: Trends, Theory, Policy, Oxford Press, Oxford.
Razin, E (2000), the Impact of local government organization on development and disparities: a comparative perspective, Environment and Planning C: Government and Policy, Vol. 18, pp. 17-31.
Razin, E and Rosentraub, M (2000), are Fragmentation and Sprawl Interlinked? North American Evidence, Urban AffairsReview, Vol.35, No.6, pp. 821-836.
Savich, H and Vogel, K. Ronald (2009), Regionalism and Urban Politics, in Davies, S. Jonathan and Imboroscio, L. David, Theories of Urban Politics, First Publishing, Sage Publication.
Stephens, G. Ross, and Nelson, W (2000), Metropolitan Government and Governance: Theoretical Perspectives, Empirical Analysis, and the Future, Oxford University Press, Oxford.
Swianiewicz, P(2007), Changing Forms of Urban Government in Central and Eastern Europe,in Hambleton, R. and Gross S.J. (eds.) Governing Cities in a Global Era: Urban Innovation, Competition, and Democratic, Palgrave Macmillan.
United Nations (2007), Urban agglomerations 2007, Department of Economic and Social Affair, Population Division, www.unpopulaion.org
Valk, A. Van Der (2003), the Dutch Planning Experience, Wageningen University, Wageningen.
Vogel, K. Ronald (ed.) (1997), Handbook of Research on Urban Politics and Policy in the United States, Greenwood Press, Westport Conn.
Wallis, A (1994), Evolving Structure and Challenge of Metropolitan Regions, National Civic Review, Vol. 83, issue.1, pp. 40-53.
Wallis, A (2009), New regionalism, in Hutchison, R.(ed) (2009), Encyclopedia of Urban Studies, Sage Publication.