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在现代民主政治条件下,参与权已成为公民的一项基本权利。作为一种新型的民主形式,公众参与的特殊意义在于通过公众富于意义的参与充足政府执政和公共决策的合法性和可接受性。伴随着我国城市化进程的急遽推进,现代城市与公众经济利益、生存质量和生活品质之攸关前所未有。由于城市规划和发展中公众参与的缺失而导致社会矛盾丛生,大量纠纷在司法实践中不断涌现,这也反证着在城市规划发展的前端和上游引入公众参与的必要性、重要性和紧迫性。以广州司法实践为例,随着“三旧”改造步伐的加快,近年来广州市两级法院受理城中村案件数量增长较快,据统计,2011年,广州两级法院受理城中村案件49件,数量超过前四年的总和。与此同时,在引发涉诉信访,尤其是集体访、过激访、缠访的案件中,以房屋拆迁、土地征用案件最多,而诸如此类“推土机前的反抗”和“大河移民的上访”均应当而且可以通过规划前期富于意义的公众参与将可能的矛盾隐患消弭于未然。为此,本文主要透过三十年治理变迁探寻公众参与城市规划的历史合理性并深入分析其现实必要性、藉由反向助推和政府自觉两个维度检视我国公众参与城市规划的实践,进而从开启官智和对开启民智的批判两个方面辨正对于公众参与城市规划的认识,以期为创新现代城市治理提供一个法院普通工作者的绵薄之力。
Under the conditions of modern democratic politics, the right to participate has become a basic right of citizens. As a new type of democracy, the special significance of public participation lies in the full and meaningful participation of the public in the governance of the government and the legitimacy and acceptability of public decision-making. With the rapid advancement of China’s urbanization process, the economic benefits, quality of life, and quality of life of modern cities and the public are unprecedented. Due to the lack of public participation in urban planning and development, resulting in social contradictions, a large number of disputes emerge in the judicial practice, which also contradicts the necessity, importance, and urgency of introducing public participation in the front and the upstream of urban planning development. Taking the judicial practice in Guangzhou as an example, with the acceleration of the transformation of the “three olds”, the number of cases handled by the two-tiered courts in Guangzhou has increased rapidly in recent years. According to statistics, in 2011, two Guangzhou courts accepted the case of Chengzhong Village. 49 pieces, the number exceeds the sum of the previous four years. At the same time, in cases involving litigation petitions, especially group visits, intensive visits, and tangled visits, the number of cases involving house demolition and land requisition is the highest, and such things as “revolt before bulldozers” and “appeal from Dahe River immigrants”. "Everything should be able to eliminate the potential contradictions by planning meaningful public participation in the early stages. For this reason, this paper mainly explores the historical rationality of the public participation in urban planning through three decades of governance changes, and analyzes its practical necessity in depth. It examines the practice of public participation in urban planning through the two dimensions of reverse boosting and government self-awareness. Then, from the opening of Guan Zhi and the criticism of the opening of the people’s wisdom, we must distinguish the understanding of the public participation in urban planning, in order to provide a meagre force for the ordinary court workers to innovate modern city governance.