城市发展战略规划的“不变”与“变”——基于杭州战略规划(2001)的回顾与思考
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摘要
城市发展战略规划是近20年来城乡规划领域的一项重要创新实践,其不仅引领着规划理念、技术方法的创新,而且推动了城乡规划体系的改革完善。从不变的本质和变化的内涵两个维度,辩证地阐述了战略规划出现与演进的基本逻辑。战略规划本质上是地方政府实施柔性治理的工具,而其具体内涵则随着不同时代对空间认知的变化而变化。通过对杭州战略规划(2001版)的回顾,印证了战略规划在地方治理中的积极作用和引领城市发展的重要价值,也反思了战略规划的局限性。进而提出在空间规划体系变革的新语境中,战略规划需要坚持其服务地方治理、引领城市发展的不变价值;在社会经济系统转型的语境中,战略规划需要确立人本思维、创新思维、多情景思维、政策性思维,不断创新理念与方法。
Urban strategic planning is an innovative practice in the field of urban and rural planning after the reform and opening up. It not only leads to the development of new planning ideas and technical methods, but also promotes the reform and improvement of the urban and rural planning system. This paper expounds on the basic logic of strategic planning in two aspects: constant essence and changing connotation. Strategic planning is essentially a flexible tool for local governance,and its specific connotation varies with the changing context at different times. By reviewing the process of Hangzhou strategic planning(2001), this paper confirms the positive role of strategic planning in local governance while it also reflects on its limitations. In light of spatial planning system reform, strategic planning needs to adhere to its constant mission of serving local governance and leading urban development. In terms of social and economic transformation, strategic planning needs to have continuous conceptual and methodological innovations.
Urban strategic planning is an innovative practice in the field of urban and rural planning after the reform and opening up. It not only leads to the development of new planning ideas and technical methods, but also promotes the reform and improvement of the urban and rural planning system. This paper expounds on the basic logic of strategic planning in two aspects: constant essence and changing connotation. Strategic planning is essentially a flexible tool for local governance,and its specific connotation varies with the changing context at different times. By reviewing the process of Hangzhou strategic planning(2001), this paper confirms the positive role of strategic planning in local governance while it also reflects on its limitations. In light of spatial planning system reform, strategic planning needs to adhere to its constant mission of serving local governance and leading urban development. In terms of social and economic transformation, strategic planning needs to have continuous conceptual and methodological innovations.
引文
[1] FRIEDMANN J. Strategic spatial planning and the longer range[J]. Planning Theory and Practice,2004,5(1):49-56.
[2] HARVEY D. The urban experience[M]. Johns Hopkins University Press, 1989.
[3] MIN J K, CHUNG C W. An anatomy of spatial planning:coming to terms with the spatial element in UK planning[J]. European Planning Studies,2010,18(2):239-257.
[4]戴逢,段险峰.城市总体发展战略规划的前前后后——关于广州战略规划的提出与思考[J].城市规划,2003(1):24-27.(DAI Feng, DUAN Xianfeng. Strategic planning:why we need it a practice in Guangzhou and some implications to reforming Chinese planning system[J]. City Planning Review, 2003(1):24-27.)
[5]邓伟骥,何子张,旺姆.面向城市治理的美丽厦门战略规划实践与思考[J].城市规划学刊,2017(5):33-40.(DENG Weiji,HE Zizhang, WANG Mu. The practice of governanceoriented strategic plan of beautiful Xiamen[J].Urban Planning Forum, 2017(5):33—40.)
[6]何鹤鸣,张京祥,耿磊.调整型“穿孔”:开发区转型中的局部收缩——基于常州高新区黄河路两侧地区的实证[J].城市规划,2018, 42(5):47-55.(HE Heming, ZHANG Jingxiang,GENG Lei. Regulation-type perforation:local shrinkage of the development zones in the context of transformation based on a case study of the region along the Huanghe road in Changzhou high-tech zone[J]. City Planning Review, 2018,42(5):47-55.)
[7]何鹤鸣,张京祥.后金融危机时代传统工业城市转型与规划应对——基于绍兴的实证[J].经济地理,2018,38(10):54-62.(HE Heming, ZHANG Jingxiang. Transformation of the traditional industrial cities and urban planningresponses in post-financial crisis era:a case study of Shaoxing[J]. Economic Geography,2018,38(10):54-62.)
[8]李晓江.关于“城市空间发展战略研究”的思考[J].城市规划,2003(2):28-34.(LI Xiaojiang, Some consideration on urban spatial strategic studies[J]. City Planning Review, 2003(2):28-34.)
[9]吕传廷,吴超,黄鼎曦.从概念规划走向结构规划——广州战略规划的回顾与创新[J].城市规划,2010,34(3):17-24.(L(U|¨)Chuanting. WU Chao. HUANG Dingxi. From concept planning to structural planning:review and innovation of strategic plan of Guangzhou[J].City Planning Review, 2010,34(3):17-24.)
[10]罗震东,王兴平,张京祥. 1980年代以来我国战略规划研究的总体进展[J].城市规划汇刊,2002(3):49-53.(LUO Zhendong,WANG Xingping, ZHANG Jingxiang. Review the research of strategic planning in China since1980s[J]. Urban Planning Forum, 2002(3):49-53.)
[11]罗震东,赵民.试论城市发展的战略研究及战略规划的形成[J].城市规划,2003,27(1):19-23.(LUO Zhendong, ZHAO Min. On the strategic study of urban development and urban strategic planning[J]. City Planning Review,2003, 27(1):19-23.)
[12]孙安军.空间规划改革的思考[J].城市规划学刊,2018(1):10-17.(SUN Anjun. Thinking on planning reform[J]. Urban Planning Forum,2018(1):10-17.)
[13]汪鑫.中国城市发展战略规划的演进——基于空间治理的视角[D].南京大学硕士学位论文,2015.(WANG Xin. The evolution of China's urban strategic planning:a spatial governance perspective[D]. The Dissertation for Master Degree ofNanjing Uinversity.2015.)
[14]王凯.从广州到杭州:战略规划浮出水面[J].城市规划,2002,26(6):57—62.(WANG Kai.From Guangzhou to Hangzhou:the arising strategic planning[J]. City Planning Review, 2002,26(6):57-62.)
[15]王磊.马赤宇,胡继元.战略规划的认识与思考:基于不同发展形势下的战略规划取向[J].城市发展研究,2011, 18(6):7-12.(WANG Lei, MA Chiyu, HU Jiyuan. The review and study of strategic planning[J]. Urban Development Studies, 2011, 18(6):7-12.)
[16]王旭,罗震东.转型重构语境中的中国城市发展战略规划的演进[J].规划师,2011,27(7):84-88.(WANG Xu, LUO Zhendong.Strategic planning evolution within China'stransformation context[J]. Planners, 2011,27(7):84-88.)
[17]吴志强,于私,姜楠.论城市发展战略规划研究的整体方法——沈阳实例中的理性思维的导入[J].城市规划,2003(1):38-42,99.(WU Zhiqiang, YU Hong, JIANG Nan.Research on the whole method of urban strategic planning:a case study of Shenyang[J]. City Planning Review, 2003(1):38-42,99.)
[18]徐泽,张云峰,徐颖.战略规划十年回顾与展望:以宁波2030城市发展战略为例[J].城市规划,2012,36(8):73-79,86.(XU Ze,ZHANG Yunfeng, XU Ying. Review and prospective of ten-year strategic planning:a case study on Ningbo urban development strategy2030[J]. City Planning Review,2012,36(8):73-79,86.)
[19]杨东峰.重构可持续的空间规划体系——2010年以来英国规划创新与争议[J].城市规划,2016,40(8):91-99.(YANG Dongfeng.Reconstructing sustainable spatial planning system:innovations and relevant debates of the UK government since 2010[J]. City Planning Review, 2016,40(8):91-99.)
[20]于涛,张京祥,罗小龙,陈眉舞.人本视角下的城市发展动力与治理创新——基于南京实证研究[J].城市规划,2018,42(3):50-58.(YU Tao, ZHANG Jingxiang, LUO Xiaolong, CHEN Meiwu. Dynamics of urban development and governance innovation from the humanistic perspective:an empirical study of Nanjing[J]. City Planning Review, 2018, 42(3):50-58.)
[21]张兵.敢问路在何方:战略规划的产生、发展与未来[J].城市规划,2002,26(6):63-68.(ZHANG Bing. A critical review of the strategic planning practice in contemporary China with Guangzhou, Nanjing and Jiangyin as the cases[J]. City Planning Review, 2002, 26(6):63-68.)
[22]张兵.关于“概念规划”方法的初步研究:以“广州城市总体发展概念规划”实践为例[J].城市规划,2001,25(3):53-57.(ZHANG Bing. Concept planning:case of concept planning for Guangzhou city development[J]. City Planning Review. 2001.25(3):53-57.)
[23]张京祥,冯灿芳,陈浩.城市收缩的国际研究与中国本土化探索[J].国际城市规划,2017, 32(5):1-9.(ZHANG Jingxiang, Feng Cantang, CHEN Hao. International research and China's exploration of urban shrinking[J]. Urban Planning International, 2017,32(5):1-9.)
[24]张京祥,林怀策,陈浩.中国空间规划体系40年的变迁与改革[J].经济地理,2018, 38(7):1-6.(ZHANG Jingxiang, LIN Huaice,CHEN Hao. 40-Year changes and reforms of China's spatial planning system[J]. Economic Geography, 2018, 38(7):1-6.)
[25]张京祥,吴缚龙,崔功豪.城市发展战略规划:透视激烈竞争环境中的地方政府管治[J].人文地理,2004,19(3):1-5.(ZHANG Jingxiang, WU Fulong, CUI Gonghao. Urban development strategic planning:a perspective of local government governance in the competitive situations[J]. Human Geography, 2004, 19(3):1-5.)
[26]张勤,章建明,张京祥,等.追求善治与善政的统一——杭州“最多跑一次”规划实施管理改革经验与启示[J].城市规划,2018, 42(4):9-17.93.(ZHANG Qin,ZHANG Jianming, ZHANG Jingxiang, et al.Pursuing “good governance” and “good government”:experiences and implications from the"running at most once"planning implementation regulation reform in Hangzhou[J]. City Planning Review,2018,42(4):9-17,93.)
[27]赵燕菁.探索新的范型:概念规划的理论与方法[J].城市规划,2001,25(3):38-52.(ZHAO Yanjing. On the theoretical foundation and methodology of concept planningQ]. City Planning Review,2001,25(3):38-52.)
[28]郑德高,孙娟.基于竞争力与可持续发展法则的武汉2049发展战略[J].城市规划学刊,2014(2):40-50.(ZHENG Degao, SUN Juan. Great Wuhan development strategy towards 2049 on the basis of competitiveness and sustainable developmeent[J]. Urban Planning Forum, 2014(2):40-50.)
[29]郑国.地方政府行为变迁与城市战略规划演进[J].城市规划,2017, 41(4):16-21.(ZHENG Guo. Research on the evolution of China's urban strategic planning from the perspective of local government's role[J]. City Planning Review, 2017,41(4):16-21.)
[30]郑国.基于城市治理的中国城市战略规划解析与转型[J].城市规划学刊.2016(5):42-45.(ZHENG Guo. Research on urban strategic planning with the perspective of urban governance[J].Urban Planning Forum, 2016(5):42-45.)
[31]邹德慈.审时度势.统筹全局,图谋致远.开拓进取——谈战略规划的若干问题[J].城市规划,2003(1):17-18.(ZOU Deci. Some consideration on strategic planning[J]. City Planning Review, 2003(1):17-18.)
[2] HARVEY D. The urban experience[M]. Johns Hopkins University Press, 1989.
[3] MIN J K, CHUNG C W. An anatomy of spatial planning:coming to terms with the spatial element in UK planning[J]. European Planning Studies,2010,18(2):239-257.
[4]戴逢,段险峰.城市总体发展战略规划的前前后后——关于广州战略规划的提出与思考[J].城市规划,2003(1):24-27.(DAI Feng, DUAN Xianfeng. Strategic planning:why we need it a practice in Guangzhou and some implications to reforming Chinese planning system[J]. City Planning Review, 2003(1):24-27.)
[5]邓伟骥,何子张,旺姆.面向城市治理的美丽厦门战略规划实践与思考[J].城市规划学刊,2017(5):33-40.(DENG Weiji,HE Zizhang, WANG Mu. The practice of governanceoriented strategic plan of beautiful Xiamen[J].Urban Planning Forum, 2017(5):33—40.)
[6]何鹤鸣,张京祥,耿磊.调整型“穿孔”:开发区转型中的局部收缩——基于常州高新区黄河路两侧地区的实证[J].城市规划,2018, 42(5):47-55.(HE Heming, ZHANG Jingxiang,GENG Lei. Regulation-type perforation:local shrinkage of the development zones in the context of transformation based on a case study of the region along the Huanghe road in Changzhou high-tech zone[J]. City Planning Review, 2018,42(5):47-55.)
[7]何鹤鸣,张京祥.后金融危机时代传统工业城市转型与规划应对——基于绍兴的实证[J].经济地理,2018,38(10):54-62.(HE Heming, ZHANG Jingxiang. Transformation of the traditional industrial cities and urban planningresponses in post-financial crisis era:a case study of Shaoxing[J]. Economic Geography,2018,38(10):54-62.)
[8]李晓江.关于“城市空间发展战略研究”的思考[J].城市规划,2003(2):28-34.(LI Xiaojiang, Some consideration on urban spatial strategic studies[J]. City Planning Review, 2003(2):28-34.)
[9]吕传廷,吴超,黄鼎曦.从概念规划走向结构规划——广州战略规划的回顾与创新[J].城市规划,2010,34(3):17-24.(L(U|¨)Chuanting. WU Chao. HUANG Dingxi. From concept planning to structural planning:review and innovation of strategic plan of Guangzhou[J].City Planning Review, 2010,34(3):17-24.)
[10]罗震东,王兴平,张京祥. 1980年代以来我国战略规划研究的总体进展[J].城市规划汇刊,2002(3):49-53.(LUO Zhendong,WANG Xingping, ZHANG Jingxiang. Review the research of strategic planning in China since1980s[J]. Urban Planning Forum, 2002(3):49-53.)
[11]罗震东,赵民.试论城市发展的战略研究及战略规划的形成[J].城市规划,2003,27(1):19-23.(LUO Zhendong, ZHAO Min. On the strategic study of urban development and urban strategic planning[J]. City Planning Review,2003, 27(1):19-23.)
[12]孙安军.空间规划改革的思考[J].城市规划学刊,2018(1):10-17.(SUN Anjun. Thinking on planning reform[J]. Urban Planning Forum,2018(1):10-17.)
[13]汪鑫.中国城市发展战略规划的演进——基于空间治理的视角[D].南京大学硕士学位论文,2015.(WANG Xin. The evolution of China's urban strategic planning:a spatial governance perspective[D]. The Dissertation for Master Degree ofNanjing Uinversity.2015.)
[14]王凯.从广州到杭州:战略规划浮出水面[J].城市规划,2002,26(6):57—62.(WANG Kai.From Guangzhou to Hangzhou:the arising strategic planning[J]. City Planning Review, 2002,26(6):57-62.)
[15]王磊.马赤宇,胡继元.战略规划的认识与思考:基于不同发展形势下的战略规划取向[J].城市发展研究,2011, 18(6):7-12.(WANG Lei, MA Chiyu, HU Jiyuan. The review and study of strategic planning[J]. Urban Development Studies, 2011, 18(6):7-12.)
[16]王旭,罗震东.转型重构语境中的中国城市发展战略规划的演进[J].规划师,2011,27(7):84-88.(WANG Xu, LUO Zhendong.Strategic planning evolution within China'stransformation context[J]. Planners, 2011,27(7):84-88.)
[17]吴志强,于私,姜楠.论城市发展战略规划研究的整体方法——沈阳实例中的理性思维的导入[J].城市规划,2003(1):38-42,99.(WU Zhiqiang, YU Hong, JIANG Nan.Research on the whole method of urban strategic planning:a case study of Shenyang[J]. City Planning Review, 2003(1):38-42,99.)
[18]徐泽,张云峰,徐颖.战略规划十年回顾与展望:以宁波2030城市发展战略为例[J].城市规划,2012,36(8):73-79,86.(XU Ze,ZHANG Yunfeng, XU Ying. Review and prospective of ten-year strategic planning:a case study on Ningbo urban development strategy2030[J]. City Planning Review,2012,36(8):73-79,86.)
[19]杨东峰.重构可持续的空间规划体系——2010年以来英国规划创新与争议[J].城市规划,2016,40(8):91-99.(YANG Dongfeng.Reconstructing sustainable spatial planning system:innovations and relevant debates of the UK government since 2010[J]. City Planning Review, 2016,40(8):91-99.)
[20]于涛,张京祥,罗小龙,陈眉舞.人本视角下的城市发展动力与治理创新——基于南京实证研究[J].城市规划,2018,42(3):50-58.(YU Tao, ZHANG Jingxiang, LUO Xiaolong, CHEN Meiwu. Dynamics of urban development and governance innovation from the humanistic perspective:an empirical study of Nanjing[J]. City Planning Review, 2018, 42(3):50-58.)
[21]张兵.敢问路在何方:战略规划的产生、发展与未来[J].城市规划,2002,26(6):63-68.(ZHANG Bing. A critical review of the strategic planning practice in contemporary China with Guangzhou, Nanjing and Jiangyin as the cases[J]. City Planning Review, 2002, 26(6):63-68.)
[22]张兵.关于“概念规划”方法的初步研究:以“广州城市总体发展概念规划”实践为例[J].城市规划,2001,25(3):53-57.(ZHANG Bing. Concept planning:case of concept planning for Guangzhou city development[J]. City Planning Review. 2001.25(3):53-57.)
[23]张京祥,冯灿芳,陈浩.城市收缩的国际研究与中国本土化探索[J].国际城市规划,2017, 32(5):1-9.(ZHANG Jingxiang, Feng Cantang, CHEN Hao. International research and China's exploration of urban shrinking[J]. Urban Planning International, 2017,32(5):1-9.)
[24]张京祥,林怀策,陈浩.中国空间规划体系40年的变迁与改革[J].经济地理,2018, 38(7):1-6.(ZHANG Jingxiang, LIN Huaice,CHEN Hao. 40-Year changes and reforms of China's spatial planning system[J]. Economic Geography, 2018, 38(7):1-6.)
[25]张京祥,吴缚龙,崔功豪.城市发展战略规划:透视激烈竞争环境中的地方政府管治[J].人文地理,2004,19(3):1-5.(ZHANG Jingxiang, WU Fulong, CUI Gonghao. Urban development strategic planning:a perspective of local government governance in the competitive situations[J]. Human Geography, 2004, 19(3):1-5.)
[26]张勤,章建明,张京祥,等.追求善治与善政的统一——杭州“最多跑一次”规划实施管理改革经验与启示[J].城市规划,2018, 42(4):9-17.93.(ZHANG Qin,ZHANG Jianming, ZHANG Jingxiang, et al.Pursuing “good governance” and “good government”:experiences and implications from the"running at most once"planning implementation regulation reform in Hangzhou[J]. City Planning Review,2018,42(4):9-17,93.)
[27]赵燕菁.探索新的范型:概念规划的理论与方法[J].城市规划,2001,25(3):38-52.(ZHAO Yanjing. On the theoretical foundation and methodology of concept planningQ]. City Planning Review,2001,25(3):38-52.)
[28]郑德高,孙娟.基于竞争力与可持续发展法则的武汉2049发展战略[J].城市规划学刊,2014(2):40-50.(ZHENG Degao, SUN Juan. Great Wuhan development strategy towards 2049 on the basis of competitiveness and sustainable developmeent[J]. Urban Planning Forum, 2014(2):40-50.)
[29]郑国.地方政府行为变迁与城市战略规划演进[J].城市规划,2017, 41(4):16-21.(ZHENG Guo. Research on the evolution of China's urban strategic planning from the perspective of local government's role[J]. City Planning Review, 2017,41(4):16-21.)
[30]郑国.基于城市治理的中国城市战略规划解析与转型[J].城市规划学刊.2016(5):42-45.(ZHENG Guo. Research on urban strategic planning with the perspective of urban governance[J].Urban Planning Forum, 2016(5):42-45.)
[31]邹德慈.审时度势.统筹全局,图谋致远.开拓进取——谈战略规划的若干问题[J].城市规划,2003(1):17-18.(ZOU Deci. Some consideration on strategic planning[J]. City Planning Review, 2003(1):17-18.)