我国城市规划实施评估发展历程、技术特征与演变趋势
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摘要
在20余年的发展过程中,国内城市规划实施评估从"评估源起"到"聚焦总规"再到"多元拓展",形成了相对固化的评估模式。其技术特征表现在五大方面,即规划落实的检验、实施过程的分析、实施问题的研判、公众反馈的归纳和优化实施的建议。该评估模式的逻辑基点是将评估视为一个实证命题,以实证主义方法为手段,重事实描述轻价值判断,体现出鲜明的"实证本位、测量导向"特征。然而,无论是从评价活动的本质要求还是从政策科学的基本规律来看,实证与规范相结合,从测量导向到测量、判断、解释、对策的综合导向,是评估发展的必然要求,构成了规划实施演变趋势的基本内涵。
The evaluation of urban planning implementation in China originated around 1996. It is not only a response to the query of "planning effectiveness", but also a revision of the phenomenon of "paying attention to revise, neglecting of reflection". In the course of development for more than 20 years, it has experienced three stages: the origin of evaluation,focusing on master plan and pluralistic development. At first, it draws lessons from Western planning evaluation theory, and carries out a preliminary theoretical framework. The evaluation practice has been carried out in Shenzhen, Guangzhou, Shanghai, Zhejiang Province. With the promulgation of the new edition of Urban and Rural Planning Law and the Evaluation Method for the Implementation of Urban Master Planning, the evaluation has gradually been legalized and standardized. At the same time, urban master plan has become the core object of evaluation. Under the influence of "scientism" in urban planning, instrumental rationality has become the dominant factor. The application of comprehensive evaluation theory and method develop rapidly in evaluation. Since then, a relatively mature and standard evaluation model has basically come into being. And mode solidification also means the germination of new changes. Since 2013, the evaluation has gradually developed towards diversification. Firstly, it expands the target of evaluation, from general planning to various types of statutory and nonstatutory planning. Secondly, the evaluation perspective is focused from holistic assessment to in-depth thematic assessment. Finally, the innovation of evaluation tools ref lected in the increasing application of large data and remote sensing data in evaluation. On the whole, the content and method system of urban planning implementation evaluation in China are basically clear. The content includes four aspects: the test of the implementation of planning content,the analysis of the mechanism of the implementation process, the research and judgment of the planning implementation issue and the suggestion of the optimization of the implementation of planning. In terms of evaluation methods, qualitative analysis is used for the spatial structure system, policy measures, implementation guarantee mechanism and implementation effect,and quantitative analysis is used for planning phased objectives, indicators, proportions,public satisfaction. From a large number of practical cases, although the evaluation content is involved in all aspects, its structural proportion shows obvious non-equilibrium. Checking the implementation of planning content becomes the core task of evaluation. The main content of the evaluation is to measure the conformity of material space construction and to quantitatively consider the implementation of target indicators. This leads to a strong"positivism" feature in the evaluation work, that is, "the description of facts is more important than the dialectics of value" in content and "the tendency of mathematical and physical positivism" in method. Positivism is considered to be a philosophical thought rooted in rationalism. It is based on the dichotomy of fact and value, which requires an absolute and objective understanding of planning and implementation. On this basis, it seems that the evaluation of value in planning implementation has become redundant, and value judgment has been excluded or even dismissed. In the author's opinion, this model of "empirical evaluation" originates from the cognitive basis that implementation evaluation is regarded as an empirical proposition. There are two reasons: from the point of view of planning management,evaluation is defined as "inspection" and "supervision"; from the point of view of planning technology, the "relative correctness" of planning itself makes evaluation need not carry out too much normative analysis. From the current point of view, the two basic conditions of empirical evaluation have been shaken. The original empirical-based evaluation model will also change. Whether from the essence of evaluation activities or from the development experience of policy evaluation, the combination of empirical and normative is the inevitable trend of the evolution of evaluation work. Empirical evaluation answers "what is the fact" and normative evaluation answers "what should it be?" The former takes "measurement"and "interpretation" as tasks, while the latter takes "judgment" and "choice" as objectives. All of them are indispensable for evaluation. The combination of demonstration and norm, from measurement orientation to comprehensive orientation of measurement, judgment, interpretation and countermeasures, is the inevitable requirement of evaluation development. It constitutes the basic connotation of the evolution trend of planning implementation. The evaluation of urban planning implementation is of great significance to the improvement of planning work. The evaluation of planning implementation in China is at the initial stage, and most of the evaluation practices are quick and operational evaluation,but there are more and more independent, perfect and in-depth research assessments. This paper makes a comprehensive analysis of the process,technical characteristics and development trend of the evaluation of planning implementation in China, hoping to provide ideas and basis for the innovation of evaluation scientific thinking and methods.
The evaluation of urban planning implementation in China originated around 1996. It is not only a response to the query of "planning effectiveness", but also a revision of the phenomenon of "paying attention to revise, neglecting of reflection". In the course of development for more than 20 years, it has experienced three stages: the origin of evaluation,focusing on master plan and pluralistic development. At first, it draws lessons from Western planning evaluation theory, and carries out a preliminary theoretical framework. The evaluation practice has been carried out in Shenzhen, Guangzhou, Shanghai, Zhejiang Province. With the promulgation of the new edition of Urban and Rural Planning Law and the Evaluation Method for the Implementation of Urban Master Planning, the evaluation has gradually been legalized and standardized. At the same time, urban master plan has become the core object of evaluation. Under the influence of "scientism" in urban planning, instrumental rationality has become the dominant factor. The application of comprehensive evaluation theory and method develop rapidly in evaluation. Since then, a relatively mature and standard evaluation model has basically come into being. And mode solidification also means the germination of new changes. Since 2013, the evaluation has gradually developed towards diversification. Firstly, it expands the target of evaluation, from general planning to various types of statutory and nonstatutory planning. Secondly, the evaluation perspective is focused from holistic assessment to in-depth thematic assessment. Finally, the innovation of evaluation tools ref lected in the increasing application of large data and remote sensing data in evaluation. On the whole, the content and method system of urban planning implementation evaluation in China are basically clear. The content includes four aspects: the test of the implementation of planning content,the analysis of the mechanism of the implementation process, the research and judgment of the planning implementation issue and the suggestion of the optimization of the implementation of planning. In terms of evaluation methods, qualitative analysis is used for the spatial structure system, policy measures, implementation guarantee mechanism and implementation effect,and quantitative analysis is used for planning phased objectives, indicators, proportions,public satisfaction. From a large number of practical cases, although the evaluation content is involved in all aspects, its structural proportion shows obvious non-equilibrium. Checking the implementation of planning content becomes the core task of evaluation. The main content of the evaluation is to measure the conformity of material space construction and to quantitatively consider the implementation of target indicators. This leads to a strong"positivism" feature in the evaluation work, that is, "the description of facts is more important than the dialectics of value" in content and "the tendency of mathematical and physical positivism" in method. Positivism is considered to be a philosophical thought rooted in rationalism. It is based on the dichotomy of fact and value, which requires an absolute and objective understanding of planning and implementation. On this basis, it seems that the evaluation of value in planning implementation has become redundant, and value judgment has been excluded or even dismissed. In the author's opinion, this model of "empirical evaluation" originates from the cognitive basis that implementation evaluation is regarded as an empirical proposition. There are two reasons: from the point of view of planning management,evaluation is defined as "inspection" and "supervision"; from the point of view of planning technology, the "relative correctness" of planning itself makes evaluation need not carry out too much normative analysis. From the current point of view, the two basic conditions of empirical evaluation have been shaken. The original empirical-based evaluation model will also change. Whether from the essence of evaluation activities or from the development experience of policy evaluation, the combination of empirical and normative is the inevitable trend of the evolution of evaluation work. Empirical evaluation answers "what is the fact" and normative evaluation answers "what should it be?" The former takes "measurement"and "interpretation" as tasks, while the latter takes "judgment" and "choice" as objectives. All of them are indispensable for evaluation. The combination of demonstration and norm, from measurement orientation to comprehensive orientation of measurement, judgment, interpretation and countermeasures, is the inevitable requirement of evaluation development. It constitutes the basic connotation of the evolution trend of planning implementation. The evaluation of urban planning implementation is of great significance to the improvement of planning work. The evaluation of planning implementation in China is at the initial stage, and most of the evaluation practices are quick and operational evaluation,but there are more and more independent, perfect and in-depth research assessments. This paper makes a comprehensive analysis of the process,technical characteristics and development trend of the evaluation of planning implementation in China, hoping to provide ideas and basis for the innovation of evaluation scientific thinking and methods.
引文
[1]赵民.我国城乡规划实施评估的现实基础与发展趋势[Z].太原:2017年全国城乡规划实施评估学术研讨会,2017.ZHAO M.The realistic foundation and development trend of urban and rural planning implementation assessment in China[Z].Taiyuan:National Symposium on Evaluation of Urban and Rural Planning Implementation in 2017,2017.
[2]李王鸣.城市总体规划实施评价研究[M].杭州:浙江大学出版社,2007:1-2.LI W M.The implementation evaluation of urban master planning[M].Hangzhou:Zhejiang University Press,2007:1-2.
[3]张兵.论城市规划实效评价的若干基本问题[J].城市规划汇刊,1996(2):1-11.ZHANG B.On several basic issue of evaluation of practical effect of urban planning[J].Urban Planning Forum,1996(2):1-11.
[4]唐凯.开展规划评估,促进规划改革[J].城市规划,2011,35(11):9-10.TANG K.Carry out planning evaluation to promote planning reform[J].Urban Planning,2011,35(11):9-10.
[5]夏红娟.历史文化名村保护规划实施效果评价研究[D].石家庄:河北师范大学,2015.XIA H J.Effect of the implementation of Conservation planning of historical and cultural Village evaluation[D].Shijiazhuang:Hebei Normal University,2015.
[6]张健,崔杰,房淑媛,等.基于模糊综合评价法的北京新城总体规划实施评估研究--以通州新城规划(2005-2020)实施为例[J].北京规划建设,2015(2):94-99.ZHANG J,CUI J,FANG S Y,et al.The implementation evaluation of Beijing new town master plan based on the fuzzy comprehensive evaluation method-a case study of the implementation of Tongzhou new town planning(2005-2020)[J].Beijing Planning Review,2015(2):94-99.
[7]任晓蕾,张旺锋,张京娟,等.基于效用函数综合评价法的县域城市总体规划实施评估研究--以庆阳市环县为例[J].资源开发与市场,2015,31(6):686-691.REN X L,ZHANG W F,ZHANG J J,et al.Research on implementation of county overall urban planning based on effective-functions comprehensive evaluation-a case study of Huanxian county in Qingyang[J].Resource Development&Market,2015,31(6):686-691.
[8]刘冰,张涵双,曹娟娟,等.基于公交可达性绩效的武汉市空间战略实施评估[J].城市规划学刊,2017(1):39-47.LIU B,ZHANG H S,CAO J J,et al.Wuhan’s spatial strategy implementation appraisal based on transit accessibility performance[J].Urban Planning Forum,2017(1):39-47.
[9]周珂慧,祁鹿年.基于创新效率视角的总体规划实施评估--以苏州工业园区为例[J].江苏城市规划,2015(10):9-13.ZHOU K H,QI L N.Implementation evaluation of master planning based on the perspective of innovation efficiency-a case study of Suzhou Industrial Park[J].Jiangsu Urban Planning,2015(10):9-13.
[10]席广亮,甄峰.基于大数据的城市规划评估思路与方法探讨[J].城市规划学刊,2017(1):56-62.XI G L,ZHEN F.Exploring the ideas and methods of urban planning evaluation based on big data[J].Urban Planning Forum,2017(1):56-62.
[11]廖茂羽,罗震东.城市总体规划实施评估的方法体系与研究进展[J].上海城市规划,2015(1):82-88.LIAO M Y,LUO Z D.Method system and research progress on the implementation evaluation of urban master planning[J].Shanghai Urban Planning,2015(1):82-88.
[12]乐山市城市总体规划(2011-2030)实施评估[R].成都:四川省城乡规划设计研究院,2017.Implementation evaluation of the Leshan city master plan(2011-2030)[R].Chengdu:Sichuan Institute of Urban Planning and Design,2017.
[13]罗震东,廖茂羽.政府运行视角下的城市总体规划实施过程评价方法探讨[J].规划师,2013,29(6):10-17.LUO Z D,LIAO M Y,Urban master plan implementation evaluation from government viewpoint[J].Planners,2013,29(6):10-17.
[14]袁也.城市总体布局规划实施过程中的政策分析框架--以上海外环绿带为例[J].城市规划学刊,2016(4):39-45.Y UAN Y.The analy tical f ramework of policyprocess in urban master plan implementation:an empirical study on the outer-ring road greenbelt in Shanghai[J].Urban Planning Forum,2016(4):39-45.
[15]李津莉.规划管理视角下天津历史文化街区保护规划实施评价[J].上海城市规划,2016(5):19-25.LI J L.The planning implementation evaluation of conservation planning in Tianjin historic and cultural district in the view of city planning management[J].Shanghai Urban Planning,2016(5):19-25.
[16]田莉.城市规划的价值导向:效率与公平消长中的困惑[C]/中国城市规划学会.规划50年:2006中国城市规划年会论文集(中册).北京:中国建筑工业出版社,2006:4.TIAN L.Value orientation of urban planning:puzzlement in the growth and decline of efficiency and fairness[C]//Urban Planning Society of China.Fifty Years of Planning:Papers of the 2006 Annual Conference on Urban Planning in China(Medium Volume).Beijing:China Architecture&Building Press,2006:4.
[17]周琳.城市总体规划实施满意度评价研究[D].济南:山东建筑大学,2014.ZHOU L.Research on Satisfaction Degree Evaluation of Master Plan Implementation[D].Jinan:Shandong Jianzhu University,2014.
[18]孙施文.基于绩效的总体规划实施评价及其方法[J].城市规划学刊,2016(1):22-27.SUN S W.The Evaluation of City Comprehensive Plan Implementation and Evaluation Methods:Based on Planning Performance[J].Urban Planning Forum,2016(1):22-27.
[19]张兵.城市规划编制的技术理性之评析[J].城市规划汇刊,1998(1):13-19.ZHANG B.Analysis of Technical Rational Nature in Making Urban Plans[J].Urban Planning Forum,1998(1):13-19.
[20]WILDAVSKY A.Speaking truth topower:the art and craft of policyanalysis[M].London:Transaction,1987.
[21]冯平.评价论[M].上海:东方出版社,1995:32-33.FENG P.Evaluation Theory[M].Shanghai:The Oriental Press,1995:32-33.
[22]REIN M.Social science and publicpolicy[M].New York:Penguin Books,1976.
[23]张庭伟.技术评价,实效评价,价值评价--关于城市规划成果的评价[J].国际城市规划,2009,24(6):1-2.ZHANG T W.On Plan Evaluation:Technical Assessment,Implementation Review,and Value Judgment[J].Urban Planning International,2009,24(6):1-2.
[24]GRONLUND N E,LINN R L.Measurement and evaluation inteaching[M].New York:Macmillan,1985.
(1)马璇调查了自2008年后的5年中18个省份的城市总规实施评估工作,经统计162个城市已开展实施。
[2]李王鸣.城市总体规划实施评价研究[M].杭州:浙江大学出版社,2007:1-2.LI W M.The implementation evaluation of urban master planning[M].Hangzhou:Zhejiang University Press,2007:1-2.
[3]张兵.论城市规划实效评价的若干基本问题[J].城市规划汇刊,1996(2):1-11.ZHANG B.On several basic issue of evaluation of practical effect of urban planning[J].Urban Planning Forum,1996(2):1-11.
[4]唐凯.开展规划评估,促进规划改革[J].城市规划,2011,35(11):9-10.TANG K.Carry out planning evaluation to promote planning reform[J].Urban Planning,2011,35(11):9-10.
[5]夏红娟.历史文化名村保护规划实施效果评价研究[D].石家庄:河北师范大学,2015.XIA H J.Effect of the implementation of Conservation planning of historical and cultural Village evaluation[D].Shijiazhuang:Hebei Normal University,2015.
[6]张健,崔杰,房淑媛,等.基于模糊综合评价法的北京新城总体规划实施评估研究--以通州新城规划(2005-2020)实施为例[J].北京规划建设,2015(2):94-99.ZHANG J,CUI J,FANG S Y,et al.The implementation evaluation of Beijing new town master plan based on the fuzzy comprehensive evaluation method-a case study of the implementation of Tongzhou new town planning(2005-2020)[J].Beijing Planning Review,2015(2):94-99.
[7]任晓蕾,张旺锋,张京娟,等.基于效用函数综合评价法的县域城市总体规划实施评估研究--以庆阳市环县为例[J].资源开发与市场,2015,31(6):686-691.REN X L,ZHANG W F,ZHANG J J,et al.Research on implementation of county overall urban planning based on effective-functions comprehensive evaluation-a case study of Huanxian county in Qingyang[J].Resource Development&Market,2015,31(6):686-691.
[8]刘冰,张涵双,曹娟娟,等.基于公交可达性绩效的武汉市空间战略实施评估[J].城市规划学刊,2017(1):39-47.LIU B,ZHANG H S,CAO J J,et al.Wuhan’s spatial strategy implementation appraisal based on transit accessibility performance[J].Urban Planning Forum,2017(1):39-47.
[9]周珂慧,祁鹿年.基于创新效率视角的总体规划实施评估--以苏州工业园区为例[J].江苏城市规划,2015(10):9-13.ZHOU K H,QI L N.Implementation evaluation of master planning based on the perspective of innovation efficiency-a case study of Suzhou Industrial Park[J].Jiangsu Urban Planning,2015(10):9-13.
[10]席广亮,甄峰.基于大数据的城市规划评估思路与方法探讨[J].城市规划学刊,2017(1):56-62.XI G L,ZHEN F.Exploring the ideas and methods of urban planning evaluation based on big data[J].Urban Planning Forum,2017(1):56-62.
[11]廖茂羽,罗震东.城市总体规划实施评估的方法体系与研究进展[J].上海城市规划,2015(1):82-88.LIAO M Y,LUO Z D.Method system and research progress on the implementation evaluation of urban master planning[J].Shanghai Urban Planning,2015(1):82-88.
[12]乐山市城市总体规划(2011-2030)实施评估[R].成都:四川省城乡规划设计研究院,2017.Implementation evaluation of the Leshan city master plan(2011-2030)[R].Chengdu:Sichuan Institute of Urban Planning and Design,2017.
[13]罗震东,廖茂羽.政府运行视角下的城市总体规划实施过程评价方法探讨[J].规划师,2013,29(6):10-17.LUO Z D,LIAO M Y,Urban master plan implementation evaluation from government viewpoint[J].Planners,2013,29(6):10-17.
[14]袁也.城市总体布局规划实施过程中的政策分析框架--以上海外环绿带为例[J].城市规划学刊,2016(4):39-45.Y UAN Y.The analy tical f ramework of policyprocess in urban master plan implementation:an empirical study on the outer-ring road greenbelt in Shanghai[J].Urban Planning Forum,2016(4):39-45.
[15]李津莉.规划管理视角下天津历史文化街区保护规划实施评价[J].上海城市规划,2016(5):19-25.LI J L.The planning implementation evaluation of conservation planning in Tianjin historic and cultural district in the view of city planning management[J].Shanghai Urban Planning,2016(5):19-25.
[16]田莉.城市规划的价值导向:效率与公平消长中的困惑[C]/中国城市规划学会.规划50年:2006中国城市规划年会论文集(中册).北京:中国建筑工业出版社,2006:4.TIAN L.Value orientation of urban planning:puzzlement in the growth and decline of efficiency and fairness[C]//Urban Planning Society of China.Fifty Years of Planning:Papers of the 2006 Annual Conference on Urban Planning in China(Medium Volume).Beijing:China Architecture&Building Press,2006:4.
[17]周琳.城市总体规划实施满意度评价研究[D].济南:山东建筑大学,2014.ZHOU L.Research on Satisfaction Degree Evaluation of Master Plan Implementation[D].Jinan:Shandong Jianzhu University,2014.
[18]孙施文.基于绩效的总体规划实施评价及其方法[J].城市规划学刊,2016(1):22-27.SUN S W.The Evaluation of City Comprehensive Plan Implementation and Evaluation Methods:Based on Planning Performance[J].Urban Planning Forum,2016(1):22-27.
[19]张兵.城市规划编制的技术理性之评析[J].城市规划汇刊,1998(1):13-19.ZHANG B.Analysis of Technical Rational Nature in Making Urban Plans[J].Urban Planning Forum,1998(1):13-19.
[20]WILDAVSKY A.Speaking truth topower:the art and craft of policyanalysis[M].London:Transaction,1987.
[21]冯平.评价论[M].上海:东方出版社,1995:32-33.FENG P.Evaluation Theory[M].Shanghai:The Oriental Press,1995:32-33.
[22]REIN M.Social science and publicpolicy[M].New York:Penguin Books,1976.
[23]张庭伟.技术评价,实效评价,价值评价--关于城市规划成果的评价[J].国际城市规划,2009,24(6):1-2.ZHANG T W.On Plan Evaluation:Technical Assessment,Implementation Review,and Value Judgment[J].Urban Planning International,2009,24(6):1-2.
[24]GRONLUND N E,LINN R L.Measurement and evaluation inteaching[M].New York:Macmillan,1985.
(1)马璇调查了自2008年后的5年中18个省份的城市总规实施评估工作,经统计162个城市已开展实施。