解析中国城市规划:规划院制度与中国城市规划发展探究
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摘要
作为研究中国城市规划发展系列文章中的一篇,意图通过对独具中国特色的规划院制度的形成及其发展演变过程的回顾和分析,揭示中国城市规划构成及其发展路径的独特性,为全面理解我国城市规划提供了一个观察和分析的维度。通过对城市规划编制工作作为政府行为在设立独立的规划院机构后逐步演化为市场性行为、规划院从行政部门的直属机构逐步"企业化"两条线索的并行叙述,揭示出规划院制度与我国城市规划体系、整体制度以及实践活动的发展之间的相互影响、相互促进的关系,在为中国快速城镇化发展作出巨大贡献的同时,也对我国城市规划领域中普遍存在的一些问题的形成和固化,如只注重规划编制及其技术内涵、专业技术和行政行为之间关系的错置、规划编制与规划实施相脱节以及规划编制成果法律地位的不清晰等,具有直接的影响。
As one of the research series on urban planning in China, this paper analyses the regime of planning institute and its evolving process, and reveals the peculiarity of this institution and the uniqueness of urban planning practice in China as a whole by comparing Chinese cases with their counterparts in other countries and regions. Through tracing back to this institution's formation period in the 1950 s when former Soviet Union model was emulalated, this paper elaborates its development process through two threads:(I) transformation of urban planning from a government behavior to a market-oriented one, and(2) transformation of the planning institute from a government department to a business entity. It is found that planning institutes have played critical roles in the development of urban planning profession in China, and such an institution has strived to integrated diverse socioeconomic forces to carry forward the rapid urbanization process since 1978. Meanwhile it has also become a system barrier to resolve many problems in urban planning, such as overemphasis on technicality of plans,mismatch between different spatial palns, dislocation of administrative and technical powers, gap between plan-making and plan-implementation, and lack of legal status of statutory plans.
As one of the research series on urban planning in China, this paper analyses the regime of planning institute and its evolving process, and reveals the peculiarity of this institution and the uniqueness of urban planning practice in China as a whole by comparing Chinese cases with their counterparts in other countries and regions. Through tracing back to this institution's formation period in the 1950 s when former Soviet Union model was emulalated, this paper elaborates its development process through two threads:(I) transformation of urban planning from a government behavior to a market-oriented one, and(2) transformation of the planning institute from a government department to a business entity. It is found that planning institutes have played critical roles in the development of urban planning profession in China, and such an institution has strived to integrated diverse socioeconomic forces to carry forward the rapid urbanization process since 1978. Meanwhile it has also become a system barrier to resolve many problems in urban planning, such as overemphasis on technicality of plans,mismatch between different spatial palns, dislocation of administrative and technical powers, gap between plan-making and plan-implementation, and lack of legal status of statutory plans.
引文
[1]孙施文.中国城乡规划学科发展的历史与展望[J].城市规划,2016(12):106-112.(SUN Shiwen.The discipline of urban and rural planning in China:history and prospect[J].City Planning Review,2016(12):106-112.)
[2]孙施文.解析中国城市规划[J].城乡规划,2017(1):12-21.(SUN Shiwen.On urban planning system in China[J].Urban and Rural Planning,2017(1):12-21.)
[3]李浩.八大重点城市规划:新中国成立初期的城市规划历史研究(上、下卷)[M].北京:中国建筑工业出版社,2016.(LI Hao.The planning of eight key new industrial cities:urban planning history of P.R China in 1950s[M].Beijing:China Architecture&Building Press,2016.)
[4]李浩.城·事·人:新中国第一代城市规划工作者访谈录(第一——五辑)[M].北京:中国建筑工业出版社,2017.(LI Hao.Cities,planning activities and witnesses:interviews with senior experts of urban planning[M].Beijing:China Architecture&Building Press,2017.)
[5]中国城市规划学会.五十年回眸:新中国的城市规划[M].北京:商务印书馆,1999.(Urban Planning Society of China.Look back 50 years:urban planning in new China[M].Beijing:The Commercial Press,1999.)
[6]邹德慈,等,新中国城市规划发展史(1949-2009)[R].国家自然科学基金课题报告,2014.(ZOU Deci,The history of urban planning development in new China 1949-2009[R].The Report to NSFC(Natural Science Foundation of China),2014.)
[7]中国城市规划学会.中国城乡规划学学科史[M].北京:中国科学技术出版社,2018.(Urban Planning Society of China.Disciplinary history of urban and rural planning in China[M].Beijing:China Science and Technology Press,2018.)
[8]詹姆斯·艾伦·史密斯.思想的掮客:智库与新政策精英的崛起[M].李刚,等,译.南京:南京大学出版社,2017.(SMITH J A.The idea brokers:think tanks and the rise of the new policy elite[M].LI Gang,et al,translate.Nanjing:Nanjing University Press,2017.)
[9]罗伯特·海涅曼,威廉·布鲁姆,等.政策分析师的世界:理性、价值观念和政治(第三版)[M].李玲玲,译.北京:北京大学出版社,2011.(HEINEMAN R A,BLUM W T,et al.The world of the policy analyst:rationality,values,&politics[M].LI Lingling,translate.3rd ed.Beijing:Beijing University Press,2002.)
[10]RODWIN L,SANYAL B.The profession of city planning:changes,images and challenges:1950-2000[M].New Brunswick and London:Transaction Publishers,2012.
[11]爱德温·T.莱顿.工程师的反叛:社会责任与美国工程职业[M].丛杭青,等,译.杭州:浙江大学出版社,2018.(LAYTON E T.The revolt of the engineers:social responsibility and the American engineering profession[M].CONG Hangqing,et al,translate.Hangzhou:Zhejiang University Press,1986.)
[12]安索尼·T.克罗曼.迷失的律师:法律职业理想的衰落[M].周战超,石新中,译.北京:法律出版社,2002.(KRONMAN A T.The lost lawyer:failing ideals of the legal profession[M].ZHOU Zhanchao,SHI Xinzhong,transLite.Beijing:Law Press,1993.)
[13]WARD S V.Planning the twentieth-century city:the advanced capitalist world[M].Baffin Lane:John Wiley&Sons Ltd,2002.
[14]ENRIGHT T.The making of grand Paris:metropolitan urbanism in the twentyfirst century,Cambridge[M].Ma:MIT Press,2016.
(1)这些规划设计机构同时也受各类开发商的委托编制地区性的详细规划方案,但这类规划项目的数量相对较少,非各规划机构的主要业务,且也非为这些机构所独占,更重要的是在这些项目中规划设计机构的作用和角色与建筑设计院等相类似,与本文所关注的主旨不尽相同,因此不列入本文讨论的范围。
(2)有关国家城市设计院成立初期的研究,参阅李浩《八大重点城市规划》,尤其是第七章的专题讨论,P.375-416
[2]孙施文.解析中国城市规划[J].城乡规划,2017(1):12-21.(SUN Shiwen.On urban planning system in China[J].Urban and Rural Planning,2017(1):12-21.)
[3]李浩.八大重点城市规划:新中国成立初期的城市规划历史研究(上、下卷)[M].北京:中国建筑工业出版社,2016.(LI Hao.The planning of eight key new industrial cities:urban planning history of P.R China in 1950s[M].Beijing:China Architecture&Building Press,2016.)
[4]李浩.城·事·人:新中国第一代城市规划工作者访谈录(第一——五辑)[M].北京:中国建筑工业出版社,2017.(LI Hao.Cities,planning activities and witnesses:interviews with senior experts of urban planning[M].Beijing:China Architecture&Building Press,2017.)
[5]中国城市规划学会.五十年回眸:新中国的城市规划[M].北京:商务印书馆,1999.(Urban Planning Society of China.Look back 50 years:urban planning in new China[M].Beijing:The Commercial Press,1999.)
[6]邹德慈,等,新中国城市规划发展史(1949-2009)[R].国家自然科学基金课题报告,2014.(ZOU Deci,The history of urban planning development in new China 1949-2009[R].The Report to NSFC(Natural Science Foundation of China),2014.)
[7]中国城市规划学会.中国城乡规划学学科史[M].北京:中国科学技术出版社,2018.(Urban Planning Society of China.Disciplinary history of urban and rural planning in China[M].Beijing:China Science and Technology Press,2018.)
[8]詹姆斯·艾伦·史密斯.思想的掮客:智库与新政策精英的崛起[M].李刚,等,译.南京:南京大学出版社,2017.(SMITH J A.The idea brokers:think tanks and the rise of the new policy elite[M].LI Gang,et al,translate.Nanjing:Nanjing University Press,2017.)
[9]罗伯特·海涅曼,威廉·布鲁姆,等.政策分析师的世界:理性、价值观念和政治(第三版)[M].李玲玲,译.北京:北京大学出版社,2011.(HEINEMAN R A,BLUM W T,et al.The world of the policy analyst:rationality,values,&politics[M].LI Lingling,translate.3rd ed.Beijing:Beijing University Press,2002.)
[10]RODWIN L,SANYAL B.The profession of city planning:changes,images and challenges:1950-2000[M].New Brunswick and London:Transaction Publishers,2012.
[11]爱德温·T.莱顿.工程师的反叛:社会责任与美国工程职业[M].丛杭青,等,译.杭州:浙江大学出版社,2018.(LAYTON E T.The revolt of the engineers:social responsibility and the American engineering profession[M].CONG Hangqing,et al,translate.Hangzhou:Zhejiang University Press,1986.)
[12]安索尼·T.克罗曼.迷失的律师:法律职业理想的衰落[M].周战超,石新中,译.北京:法律出版社,2002.(KRONMAN A T.The lost lawyer:failing ideals of the legal profession[M].ZHOU Zhanchao,SHI Xinzhong,transLite.Beijing:Law Press,1993.)
[13]WARD S V.Planning the twentieth-century city:the advanced capitalist world[M].Baffin Lane:John Wiley&Sons Ltd,2002.
[14]ENRIGHT T.The making of grand Paris:metropolitan urbanism in the twentyfirst century,Cambridge[M].Ma:MIT Press,2016.
(1)这些规划设计机构同时也受各类开发商的委托编制地区性的详细规划方案,但这类规划项目的数量相对较少,非各规划机构的主要业务,且也非为这些机构所独占,更重要的是在这些项目中规划设计机构的作用和角色与建筑设计院等相类似,与本文所关注的主旨不尽相同,因此不列入本文讨论的范围。
(2)有关国家城市设计院成立初期的研究,参阅李浩《八大重点城市规划》,尤其是第七章的专题讨论,P.375-416
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