城市总体规划实践中的悖论及对策探讨
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摘要
针对我国城市总体规划实践中存在的诸多悖论,旨在探明造成悖论的成因并提出相应的变革对策。首先回顾我国总规制度的演进历程,从历史的视角讨论悖论逐步生成和显化的时代背景,以及当前的变革诉求,并从外部因素和规划制度自身两方面就悖论的成因进行深刻剖析;然后介绍和分析相关的国际经验;最后从规划体系、编制理念、成果形式、审批机制等几方面提出总规变革的思路及对策:一是理顺规划体系,明晰各层级规划的地位及相互关系;二是更新编制理念,突出总规的战略性和政策性;三是创新成果形式,增强总规的可操作性和公众参与性;四是优化审批机制,按照行政事权边界确定各级政府的审批内容。
The paper explores the paradox in comprehensive planning practice, and puts forward suggestions for reform.The paper first reviews the evolution of urban comprehensive planning system,and discusses the background of paradox, as well as efforts to reform the planning system from a historical perspective.It is then followed by a profound analysis of the causes of the paradox from both internal and external perspectives.In addition,the paper also introduces some relevant international experience as a reference.At the end,the paper proposes reforms in the planning system,preparation of planning scheme,planning documentation and plan approval processes.The aims of changes are 1) to rationalize the planning system and straighten out different levels of planning;2) to update the preparation of planning scheme and highlight the public policy nature of comprehensive planning;3) to bring innovation to the format of planning documentations and enhance the operability of planning and public participation;and 4) to streamline approval processes by linking the content of approval with the appropriate administrative jurisdictions.
The paper explores the paradox in comprehensive planning practice, and puts forward suggestions for reform.The paper first reviews the evolution of urban comprehensive planning system,and discusses the background of paradox, as well as efforts to reform the planning system from a historical perspective.It is then followed by a profound analysis of the causes of the paradox from both internal and external perspectives.In addition,the paper also introduces some relevant international experience as a reference.At the end,the paper proposes reforms in the planning system,preparation of planning scheme,planning documentation and plan approval processes.The aims of changes are 1) to rationalize the planning system and straighten out different levels of planning;2) to update the preparation of planning scheme and highlight the public policy nature of comprehensive planning;3) to bring innovation to the format of planning documentations and enhance the operability of planning and public participation;and 4) to streamline approval processes by linking the content of approval with the appropriate administrative jurisdictions.
引文
[5]以“国家审批”为例,主要体现在“建设部对总规纲要的审查意见要求、15个部委对总规成果草案的审查意见要求、国务院对总规成果的批复意见要求”三个方面。其中,“建设部对总规纲要的审查意见要求”主要从规划层次划分、规划区划定、城市发展目标、城市性质、城市规模、区域协调和城镇体系规划、城市总体布局、城市综合交通、资源利用与生态环境保护、市政基础设施和防灾规划、历史文化名城保护、近期建设规划、成果表述规范性等13个方面进行考查;“15个部委对总规成果草案的审查意见要求”则涉及发改委、国土部、计生委、国家地震局、国家旅游局、总参作战部、建设部、科技部、水利部、公安部、铁道部、国家文物局、国家民航总局、环保部、交通部等各部委对相关规划内容提出的补充和调整修改要求;“国务院对总规成果的批复意见要求”则主要涉及城市性质和城市发展目标、城市规划区和总体布局、城市人口和建设用地规模、城市资源环境保护、城市基础设施建设、城市人居环境改善、城市历史文化和风貌特色保护、总体规划的实施等8个方面(官大雨,2010)。
[1]曹传新,董黎明,官大雨.当前我国城市总体规划编制体制改革探索——由渐变到裂变的构思[J].城市规划,2005(10):14-18. (CAO Chuanxin,DONG Liming,GUAN Dayu.Gradual changes to abrupt shift:formulation system of urban master planning[J]. City Planning Review,2005(10):14-18.)
[2]陈秉钊.变革年代多变的城市总体规划剖析和对策卟城市规划,2002(2):49-51. (CHEN Bingzhao.The changing master planning in the transition period[J].City Planning Review,2002(2):49-51.)
[3]官大雨.国家审批要求下的城市总体规划编制——中规院近时期承担国家审批城市总体规划“审批意见”的解读[J].城市规划,2010(6):36-45. (GUAN Dayu.Urban master plan formulation in accordance with examination requirements of central government:understanding the comments on urban master plans recently made by CAUPD in the examination of central government[J].City Planning Review,2010(6):36-45.)
[4]李晓江(主持).2011中国城市规划年会自由论坛:总体规划向何处去[J].城市规划, 2011(12):28-34. (LI Xiaojiang(Moderator).Annual conference forums:master plan,where to go?[J]. City Planning Review,2011(12):28-34.)
[5]马武定,文超祥.我国城市总体规划的改革探讨[J].城市规划,2006(10):9-13. (MA Wuding,WEN Chaoxiang.On the reform of urban master planning in China 0].City Planning Review,2006(10):9-13.)
[6]尹强.冲突与协调——基于政府事权的城市总体规划体制改革思路[J].城市规划, 2004(10):58-61. (YING Qiang.Conflict and coordination [J].CityPlanningReview,2004(10):58-61.)
[7]周岚.新一轮城市总体规划编制方法探讨——以南京城市总体规划调整为例[J].城市规划.2002(1):47-49. (ZHOU Lan.The discussion on the approaches for the drafting of the city master plan with Nanjing City as the case[J].City Planning Review,2002(1):47-49.)
[8]赵民.澳大利亚的城市规划体系[J].城市规划.2000(6):51-58. (ZHAO Min.The urban planning system in Australia[J].City Planning Review,2000 (6):51-58.)
[9]赵民,乐芸.论《城乡规划法》“控权”下的控制性详细规划——从“技术参考文件”到“法定羁束依据”的嬗变[J].城市规划, 2009(9):24-30. (ZHAO Min,LE Yun.Regulatory detailed planning under the city and countryside planning act:from technical document to statutory evidence[J].City Planning Review, 2009(9):24-30.)
[1]曹传新,董黎明,官大雨.当前我国城市总体规划编制体制改革探索——由渐变到裂变的构思[J].城市规划,2005(10):14-18. (CAO Chuanxin,DONG Liming,GUAN Dayu.Gradual changes to abrupt shift:formulation system of urban master planning[J]. City Planning Review,2005(10):14-18.)
[2]陈秉钊.变革年代多变的城市总体规划剖析和对策卟城市规划,2002(2):49-51. (CHEN Bingzhao.The changing master planning in the transition period[J].City Planning Review,2002(2):49-51.)
[3]官大雨.国家审批要求下的城市总体规划编制——中规院近时期承担国家审批城市总体规划“审批意见”的解读[J].城市规划,2010(6):36-45. (GUAN Dayu.Urban master plan formulation in accordance with examination requirements of central government:understanding the comments on urban master plans recently made by CAUPD in the examination of central government[J].City Planning Review,2010(6):36-45.)
[4]李晓江(主持).2011中国城市规划年会自由论坛:总体规划向何处去[J].城市规划, 2011(12):28-34. (LI Xiaojiang(Moderator).Annual conference forums:master plan,where to go?[J]. City Planning Review,2011(12):28-34.)
[5]马武定,文超祥.我国城市总体规划的改革探讨[J].城市规划,2006(10):9-13. (MA Wuding,WEN Chaoxiang.On the reform of urban master planning in China 0].City Planning Review,2006(10):9-13.)
[6]尹强.冲突与协调——基于政府事权的城市总体规划体制改革思路[J].城市规划, 2004(10):58-61. (YING Qiang.Conflict and coordination [J].CityPlanningReview,2004(10):58-61.)
[7]周岚.新一轮城市总体规划编制方法探讨——以南京城市总体规划调整为例[J].城市规划.2002(1):47-49. (ZHOU Lan.The discussion on the approaches for the drafting of the city master plan with Nanjing City as the case[J].City Planning Review,2002(1):47-49.)
[8]赵民.澳大利亚的城市规划体系[J].城市规划.2000(6):51-58. (ZHAO Min.The urban planning system in Australia[J].City Planning Review,2000 (6):51-58.)
[9]赵民,乐芸.论《城乡规划法》“控权”下的控制性详细规划——从“技术参考文件”到“法定羁束依据”的嬗变[J].城市规划, 2009(9):24-30. (ZHAO Min,LE Yun.Regulatory detailed planning under the city and countryside planning act:from technical document to statutory evidence[J].City Planning Review, 2009(9):24-30.)
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