At present, the research on the subjects of urban governance mainly includes: three-dimensional governance structure theory (government, enterprise and society) (Hao Mao, Zhu Dajian, 2005), four-dimensional governance structure theory (government, non-governmental organizations, private enterprises and the public) (Qian, 2005) and multi-center governance theory (governance network system including government) (Wang Dianli, 2005). It can be seen that the diversification and complexity of the subjects involved in urban renewal have become a trend. Urban renewal has become a medium for different stakeholders to express their interests. Because of the complex structure of stakeholders, interest orientation and fierce competition in the process of urban renewal, it is the key to straighten out the interactive relationship between stakeholders.
1. 1 The central government is an indirect participant in urban renewal.
As the main body of public interests, the government often occupies a dominant position in urban renewal, while the central government, as the master of overall interests and the defender of long-term interests, generally affects the process of urban renewal in direct and indirect ways. On the one hand, the central government mainly guides the national urban development process through policy and legal means, as well as the approval and supervision of local government urban planning programs; On the other hand, the central government devolves power to city governments, giving them autonomy in urban development. However, in the process of renewal, the municipal government arbitrarily demolished and changed the planning scheme, exposing the lack of the central government as the overall interest subject. However, in some major projects involving environmental governance, land resources protection, urban historical context protection and inheritance, the central government's guidance and control efforts are not enough.
1.2 city government as the core subject of urban renewal
As the leader and system provider of urban renewal, urban government is not only the ruler of urban public power, but also the manager of urban public affairs and the representative of urban public interests. The city government and its multiple roles have confirmed its regional characteristics from one aspect, that is, mastering the endogeneity and uniqueness of city information, the allocation of public products and the preference of city public services. Therefore, when the city government has direct and absolute power over urban management and participates in urban renewal as an independent interest subject, the formulation and implementation of policies need to be cautious.
As the core subject of urban renewal, urban government can be divided into different sub-subjects. In addition to the city government as a whole interest subject, various government departments related to urban renewal within the city government are often regarded as different interest subjects, and government officials, as a part of interest subjects, are sometimes directly regarded as one interest subject. To put it simply, from the actual participation in the process of urban renewal, the horizontal includes all departments related to urban renewal, such as planning bureau, construction bureau, municipal bureau and so on. , vertically including the administrative sequence of cities, districts and streets at all levels. In a word, the city government not only has the power to supervise and control urban renewal, but also undertakes the obligation to guide urban renewal scientifically and reasonably, so it assumes the position of the core subject of urban renewal.
1.3 Developers and enterprises are the basic forces of urban renewal.
As the basic economic cells of a city, enterprises and developers are indispensable and important participants in urban renewal. Although the participation of developers and enterprises is essentially profit-seeking, its role is undeniable. On the one hand, private capital investment is a powerful supplement and help to public sector investment; On the other hand, the participation of developers is of great significance to solve a series of market-oriented problems such as the construction of public service facilities and the supply of social housing in the process of urban renewal.
However, developers and enterprises will face many constraints when they participate in urban renewal, including hard constraints such as technology and market, as well as soft constraints such as policies. Hard constraints can be satisfied through their own continuous development and improvement. However, soft constraints often become a breakthrough for them to breed corruption when they participate in urban renewal. In other words, in order to get a pass to participate in urban renewal and obtain favorable development conditions for themselves, enterprises often reach an alliance with the city government, thus affecting the decision-making of urban renewal.
1.4 community public has great potential in urban renewal.
Although most of the public are "vulnerable groups" in urban renewal, they have great potential as direct stakeholders in urban renewal. In fact, judging from the development course and practical experience of urban renewal in western countries, public participation in urban renewal has become a force that cannot be ignored. In the current operation mechanism of urban renewal in China, because the individual interests and demands of the community public are decentralized, they often act as "virtual subjects" in urban renewal. Because the community public will have different degrees of influence on the design of urban renewal scheme, interest structure and even the process of urban renewal, as a part of the overall interest structure of urban renewal, its potential is enormous.
1.5 the role of non-governmental organizations
Non-governmental organizations can play a good role as a bridge in the process of urban renewal. If some non-governmental organizations composed of professionals can give full play to the functions of think tanks and public spokespersons, they can not only be recognized by the public, but also serve as media for urban residents to express information and interests. In the process of urban renewal, the power displayed by non-governmental organizations is more and more obvious, which can be used as a channel to provide social participation. Therefore, the use of non-governmental organizations as a potential force for urban renewal is also worth looking forward to.
2. Interaction between stakeholders
Urban renewal is not only the re-integration of urban spatial environment, but also the process of interest distribution and coordination among stakeholders. According to the incentive compatibility principle of mechanism theory, that is, each participant can achieve the goal of the mechanism while pursuing personal goals, then the mechanism is incentive compatible (Hurwicz, 1972). As far as urban renewal is concerned, its operational goal should be to achieve the social goal of * * * winning urban economic, environmental and social benefits without harming the interests of all stakeholders or ensuring the interests among all stakeholders.
2. 1 Interaction between long-term stakeholders and short-term interest representatives
The relationship between governments is the key to the success of urban renewal. The "administrative district management" of the city government means that the management of social public affairs by the city government is a form of government governance in a cutting, closed and bounded state based on the rigid constraints of the unit administrative district boundaries (Chen Ruilian, 2006), which to a great extent urges the city government to become a regional "growth machine" that only pays attention to local affairs. As mentioned above, the lack of the central government's system is likely to lead to the neglect or indifference of the governance of the long-term and overall interests of the city government, such as the optimal allocation of regional resources and environmental governance, and finally form a situation that the interests that originally belonged to the state and the overall situation can only be maintained and represented by the city government under the realistic system.
2.2 the interaction between the city government and developers
Generally speaking, there are three forms of interest structure in the process of urban development: one is the relationship between leaders and functional units, that is, one party (leader) hires the other party (functional unit) or makes it undertake a project by contracting; Second, the negotiation and consultation relationship between organizations means that many organizations use their own resources to negotiate and cooperate in order to better realize the interests of their respective units; The third is systematic cooperation, that is, all organizations understand each other, become one, have the same idea and work together to establish a self-management network (Gerry? Stoke, 1999). The first two relationships are common in urban renewal, but the relationship of system cooperation is still being explored and developed. According to the experience of urban renewal in the west, the close cooperation among urban government, developers and real estate developers is an important guarantee for the smooth progress of urban renewal, and it is also an area worthy of special attention in domestic urban renewal.
2.3 Interaction between city government and city residents
From the perspective of principal-agent theory, the government and urban residents are the relationship between principals and agents. The city government is the representative of public interests, that is, the interests of urban residents. However, in many cases, the individual interests of residents are not always completely consistent with the public interests concerned by the government. Because the information and cost that the government needs to consider when deciding to provide a public service or public product are various and multi-level, and public policies are mandatory and selective when making public choices, there will inevitably be omissions or deviations. When there is interaction and game between government interests and public interests in urban renewal, urban residents are often discouraged by individual weakness and high cost of interest appeal.
2.4 the relationship between developers and urban residents
To deal with the relationship between developers and urban residents, according to the theory of incentive compatibility, it is necessary to realize the contribution of developers and enterprises to public interests on the basis of ensuring the pursuit of interests of developers and enterprises. The city government should encourage and restrain the developers in the planning scheme. The main purpose is to prevent the socialization of developers' costs and prevent the public from becoming scapegoats for developers' economic and social costs in urban renewal. In this regard, for the urban public, the interest protection and compensation mechanism is the key.
3 Analysis of the main factors of urban renewal benefits and its enlightenment
Urban renewal is a comprehensive systematic project, in which all stakeholders play a game. According to the development of multi-stakeholders at present, the urban renewal mode of China is a top-down renewal. This model reflects the strength of the government and the weakness of residents and communities, and generally reflects the promotion of administrative power to urban renewal projects and processes.
3. 1 The central government should give full play to its regulatory functions.
The central government relies on the overall policy to adjust the social structure, but the long-term and overall interests are not necessarily the inevitable components of the interests of local governments. In the previous article, the author analyzed that the central government, as a representative of long-term interests, may be subjective. Therefore, to ensure that the central government is not absent and offside, and to safeguard the long-term and overall interests, we must give full play to its regulatory functions. In the process of urban renewal, the central government should comprehensively supervise the planning scheme and implementation process of urban governments to prevent local interests from endangering the overall interests of the country.
3.2 Maintain the leadership core position of the municipal government
As the maker of decision-making rules in urban planning and the ruler of actual decision-making power, the city government's leading position and core position are unshakable. As a statutory decision-making body, the city government has unparalleled advantages in controlling information in urban renewal. To a great extent, the city government monopolizes the scientificity and seriousness of the planning scheme, that is, the determination of the urban renewal scheme is basically based on the will of the city government. However, in the market-oriented decision-making environment, the possibility that the city government is influenced by various stakeholders is also increasing, especially to prevent "rent-seeking" and "collusion" with interest developers.
3.3 Incentives and constraints for developers and real estate developers
Developers and real estate developers, as participants with strong interests and influence, are the most active subjects in the process of urban renewal. The instinct of pursuing interests may prompt it to use various means to influence decision-making. If the interests of developers and real estate developers are not restricted and "resources" and "power" form an alliance, it may cause damage to other stakeholders.
3.4 protect and encourage the participation of urban residents as the main body.
In western urban renewal, the mayor of a city is a citizen first, and then the decision-maker of the city. In most decision-making processes in China, urban residents are still vulnerable groups, and they are often excluded from the process of updating decision-making. As individuals with weak interests, they lack institutionalized ways and means to integrate individual interests into collective interests, and are unable to bear the high cost and support needed in this process. How to ensure and expand the participation channels and effects of urban residents will be a long-term topic in urban renewal.
4 conclusion
"Policy is essentially an institutional arrangement of the government or social public authority on the interest relationship between people" (Ding Huang, 2004). As one of the direct interests of urban renewal, the city government is also the leader of decision-making, and at the same time bears the responsibility of promoting urban renewal with administrative power. Developers and urban public represent broad public participation while safeguarding their own interests, and their effective participation and influence on government decision-making can not be ignored. As the direct audience of urban renewal, the will and interests of the urban public are factors that have to be considered in the implementation of urban renewal planning. In a word, the distribution of huge resources and interests involved in urban renewal needs to rely on publicity. Only by making urban renewal return to publicity can social fairness and justice in urban renewal be better reflected.