"制度化探索期"广州城市更新政策的议题设置及形成机制OA

Urban development in China has moved away from a period of rapid incremental expansion toward a structural transition defined by the optimization of existing land stock.While national strategies now mandate a shift toward high-quality and inclusive growth,some local governance practices remain influenced by established patterns of land finance dependency and urban space commoditization.This study identifies the"Institutional Exploration Phase"in Guangzhou as the period between the launch of the"Three Olds"transformation pilot in 2009 and the 2021 directive issued by the Ministry of Housing and Urban-Rural Development to prevent large-scale demolition and construction.The primary objective is to systematically diagnose how municipal policy frameworks distribute policy attention across competing urban values,thereby revealing the underlying logic of local governance.This study employs a mixed-methods approach that combines qualitative thematic analysis with systematic textual analysis to uncover the priorities embedded within policy documents.The research corpus consisted of 59 core municipal policy texts selected for their policy relevance and representativeness.Documents were indexed in a spreadsheet and coded in NVivo,yielding 2,376 coded instances across 20 subcategories organized into eight overarching themes.This analysis revealed a significant systemic imbalance.The themes of"Land and Property Rights"and"Industry and Investment"dominated,with land-related issues alone accounting for 550 coded instances,forming a dependency structure in which investment incentives and industrial regulations serve primarily as instruments to facilitate land value capture.In contrast,the themes of"Ecology and Landscape"and"History and Culture"remain at the structural periphery of the policy framework,together accounting for less than 11％of total policy attention.Ecological measures focus on visual aesthetics and urban image enhancement,rather than on substantive environmental resilience.Similarly,cultural protection logic exhibits a selective bias toward tangible assets suitable for tourism development,such as historic relics.Meanwhile,intangible values that underpin local life,including community memory and informal social networks,receive relatively limited institutional support.This policy bias is the product of three interlocking institutional factors:assetization path dependence under fiscal constraints,high transaction costs arising from fragmented property rights,and the relative insufficiency of mechanisms for delivering public value.While the official discourse has adopted the narrative of urban regeneration,the operational logic in some localities remains substantially influenced by land-centric development.The uneven distribution of policy attention has solidified the value hierarchy led by land value appreciation.This reveals a gap between local practices and national high-quality development goals,which is partly attributable to policy transmission lags and local contextual adjustment.In response to the legal transition initiated by the 2024 Guangzhou Urban Village Transformation Regulations,this study proposes three key interventions:refining the existing transfer and cross-site balance mechanism for cultural heritage plot ratios;reconstructing multi-dimensional performance evaluation systems;and promoting full-cycle operation-oriented financing.Such measures aim to improve multivalue coordination mechanisms and provide a theoretical reference for optimizing urban regeneration institutional design.