基于国际视野的上海全球城市核心功能发展评估 研究*
Study on the Evaluation of the Development of Shanghai’s Core Functions as a Global City from an International Perspective
彭震伟
同济大学建筑与城市规划学院 教授，博士生导师
曹 湛
同济大学建筑与城市规划学院 助理教授
钮心毅（通信作者）
同济大学建筑与城市规划学院 教授，博士生导师，niuxinyi@tongji.edu.cn
摘要: 基于“上海2035”总规实施第三方评估，借鉴公共政策评估理论，聚焦“全球资源配置、科技创新策源、高端产业引领、开放 枢纽门户”4大核心功能，从国际视野审视上海全球城市核心功能的发展。研究发现：在全球资源配置方面，上海地位稳中有 升，与顶级城市差距缩小，但功能依赖银行保险业，法律、咨询等高端服务业发展滞后；受外部环境影响，资源配置重心由海 外转向国内，与北京、香港呈现互补协同。在科技创新策源方面，上海全球合作网络排名显著提升，但受中美“科技脱钩”影 响，合作重心转向欧洲及国内；知识结构呈现“路径依赖”特征，集中在工程应用领域，存在“路径锁定”风险，且创新投入 产出效率与顶尖城市仍有差距。在高端产业引领方面，上海对外资制造业吸引力强，但本土企业贡献度低；新旧动能转换取 得成效，低端制造业有序退出，但转换效率有待提升；工业用地存在低效利用问题。在开放枢纽门户方面，国际航运中心地 位稳固，但集疏运结构依赖公路，绿色水平不足；航空枢纽能级与亚太顶级城市差距明显，中转率提升缓慢。综上，上海全球 城市核心功能在挑战中取得显著进步，但仍需在功能均衡性、创新自主性、产业本土化及枢纽联通性上寻求新的突破。
Abstract: Drawing on the Shanghai 2035 Comprehensive Plan Evaluation and public policy evaluation theories, this paper examines Shanghai’s core functions as a world city from an global perspective. It focuses on four dimensions: global resource allocation, technological innovation, high-end industrial development, and open gateway functions. Shanghai’s global resource allocation capacity has steadily improved, narrowing gaps with leading cities. However, it remains heavily reliant on banking and insurance sectors, while legal and consulting remain underdeveloped. Changes in external conditions have shifted resource allocation from international to domestic markets, increasing complementarity with Beijing and Hong Kong. In technological innovation, Shanghai has significantly improved its position in global collaboration networks. Nevertheless, U.S.– China decoupling has redirected cooperation toward Europe and domestic partners. Its knowledge structure exhibits strong path-dependence on engineering and other applied technologies, creating technological lock-in risks, while innovation efficiency continues to lag behind leading cities. Regarding high-end industrial development, Shanghai remains highly attractive to foreign manufacturing investment, but the contribution of domestic firms is relatively limited. Although progress has been made in fostering new growth drivers, the efficiency remains limited and industrial land use inefficient. As an open gateway, Shanghai has maintained its position as a leading international shipping center. However, its collection and distribution system relies heavily on road transport with insufficient progress toward green logistic. Meanwhile, its aviation hub capacity still lags behind leading Asia-Pacific cities, with slow transfer efficiency improvements. Overall, Shanghai has achieved notable progress in strengthening its core functions, but needs further breakthroughs in functional balance, innovation autonomy, industrial localization, and hub connectivity.
关键词：国际视野；全球城市；核心功能；规划评估；公共政策
Keyword: international perspective; global city; core functions; planning evaluation; public policy
中图分类号：TU984
文献标识码: A
