سياست گذاري در بزرگ شهر تهران: واكاوي دوگانه يكپارچگي - غيريكپارچگي

Policy-making in Tehran: exploring the dichotomy of integration - disintegration

بزرگ شهر (كلان شهر) تهران در معرض تصميم ها و سياست هاي چندگانه اي قراردارد: سياست هايي از سوي عوامل بخش دولتي كه هريك در يك حوزه سياست گذاري منفرد داراي قدرت هستند، تصميم هاي افراد و گروه ها در بخش خصوصي (و گاه در بخش عمومي) كه به دنبال بيشينه كردن منافع اقتصادي خود هستند، و تصميم ها و سياست هاي عوامل سياست گذاري مديريت شهري در اين بزرگ شهر. پي گيري چنين منافع چندگانه و گاه متضادي نشان از امكان بالقوه بروز ناهماهنگي ميان آنها دارد. پرسش دوگانه اين مقاله اين است كه چه عناصر، وضعيت ها و پديده هايي و هريك چگونه در شكل گيري وضعيت سياست گذاري در بزرگ شهر تهران از ديدگاه دوگانه يكپارچگي-غيريكپارچگي سياست ها اثرگذارند. در فرايند كار مقاله، در مرحله نخست دانش موجود سياست گذاري يكپارچه در برنامه ريزي بزرگ شهرها در جهان با به كارگيري روش «بازبيني سيستماتيك منابع»، استخراج شده است. در مرحله دوم داده هاي موردنياز تحليل با روش «مصاحبه» با متخصصان در بزرگ شهر تهران گردآوري، و با روش «تحليل موضوعي» تحليل شده است. دستاورد مقاله نشان مي دهد كه در بزرگ شهر تهران شكل نگرفتن توافق جمعي در ميان عوامل سياست گذاري درباره بايستگي استقرار اصول سياست گذاري يكپارچه، ناديده گرفتن يا كم توجهي به تقابل عناصر رسمي و غيررسمي سياست گذاري، آميزگري انگاشت سياست گذاري يكپارچه با سياست گذاري واحد، و نيز قرارنگرفتن تصميم گيري در يك فرايند پيوسته برنامه ريزي، مهم ترين عوامل ايجادكننده غيريكپارچگي سياست گذاري هستند.

Metropoles as complex systems are faced with multiple areas of policy-making which are interrelated، interactive، and with mutual impacts which go beyond the traditional borders of sectoral policy-making -- usually in a top-down manner by the public sector-- and policies in one policy area would have dramatic effect in the other policy areas. This is despite the fact that، worldwide، encountering areas of policy-making within sectoral decision-making sub-systems or within the geographically secluded and disconnected administrative units has made policy-makers to encounter challenges which indicate lack of inter-organisational coordination. Indeed، the disintegrated، uncoordinated، contradictory and even competitive nature of urban policies lead to inefficiency in policy-making when handling urban problems، specifically the problems which with their varied and multiple aspects and facets، the separate and distinctive decision-makers are incapable of encountering. This situation finally ends up in the occurrence of new، recursive and unsolvable urban problems. There is a multiplicity of local decision-makers and policy-makers at different trans-urban، urban and infra-urban levels as well as the national decision-makers and policy-makers whose decisions and policies affect Tehran، the capital of Iran. In addition stakeholders with various interests، aims، and intensions are following their own wills; specially ones in private sector (and sometimes in public sector) are trying to maximize their economic interests by speculation of land and built spaces in Tehran. Such decisions which their impacts on the public benefit of the citizens of this city are not even measured in the process of urban planning، policy-making and management are worsening the metropolitan problems of Tehran. The main question of this paper is “which elements، phenomena and events are forming the status of policy-making in Tehran metropolitan planning and how each of these would influence the dichotomy of integration – disintegration in this metropole. Responding this question the purpose of this paper is to exploring the dichotomy of integration- disintegration of policy-making in Tehran metropolitan planning. This paper has chosen the “qualitative research approach” and “case study research strategy” to best match the research question and purpose. Based on the research question and in the context of qualitative case study research، a tow phase process has been designed and used; in the first phase، “systematic review” of world-wide resources related to integrated policy-making in the metropolitan planning has been done. In the second phase، “semi-structures interviews” have been applied to collect the necessary information، and " thematic analysis”، has been applied to analyse the collected information and data. The achievement of this paper describe and explore the events، relations، and interactions which explain the status of policy-making in Tehran metropolitan planning in aspect of integration، which are: not existing the collective commitment to necessity of preparing required conditions to setting up an integrated metropolitan policy making، ignoring the potential contrasts among stakeholders in Tehran decision environment by the formal policy-makers، mixing the concept of integrated policy-making with the concept of single management، and also lack of a continuous process of planning، policy-making and management in this metropole.