Cities, functioning as complex organic systems, face escalating metabolic imbalances in core functions due to rapid and often unregulated growth. This necessitates a paradigm shift toward sustainable development through holistic systemic regulation. This study develops an urban functional metabolism framework which integrates dual-dimensional metrics of policy-driven dynamics and functional metabolic efficiency. Through policy text analysis and urban functional metabolic accounting, the endogenous patterns and sustainability of urban functional metabolic system exemplified by Shenyang's municipal districts have been scientifically evaluated. The results demonstrate that urban functions are driven and regulated by six major policy types across a four-stage sequence—target anchoring (T1/T2/T3), spatial reconstruction (T4), system improvement (T5), and innovation incubation (T6), and concurrently uncover the spatial-temporal synergistic-tradeoff relationships, and the spatial distribution of metabolism efficiency among the three major urban functions. These findings underpin specific multi-scale spatio-temporal intervention strategies to optimize urban metabolic patterns and resolve resource misallocation. Furthermore, the study provides a transferable systemic solution, integrating institutional design, spatial response, and metabolic optimization for sustainable urban governance.
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