重塑边界:总体规划改革与地方实践

Reshape the Boundary: Comprehensive Planning Reform and Local Practices

现阶段总体规划实践面临众多困境,包括编制内容过多、编制时间过长、不适应实际管理需求等,大部分学者提出"减负"是当前总体规划的改革核心。在综合研究相关案例的基础上,提出当前总体规划面临的核心问题是"边界模糊",这些模糊的边界包括中央与地方的事权边界、政府与市场的作用边界、城市人口规模预测的边界、规划区与中心城区的范围边界、部门之间的规划权利边界,以及大城市与小城市的内容边界。针对这些问题,地方政府通过编制其它规划来替代总体规划,包括战略规划、都市区规划、县域总体规划、三规合一规划等等。这些"规划替代"其实就是地方总体规划改革的一种创新,结合这些创新实践,认为未来总体规划改革的方向是要"重塑边界",包括放权中央与地方的事权边界,明晰政府的刚性边界与市场弹性边界,模糊城市人口规模边界,扩大规划区与中心城区范围边界,统一部门之间规划边界、区分大城市与小城市的内容边界。

At the present stage, the practice of comprehensive planning is facing with multiple predicaments, including overloaded planning contents, time-consuming process and inadaptability for the actual administrative requirements. Thus, some scholars proposed that the core of current reform is to reduce the burden on the comprehensive planning process. Based on several case studies, the issue of indistinct boundaries is presented in this paper, which is defined as the central problem in current planning process, including the boundary of administrative authority between central and local governments, the effecting range between government and market, the scope for population predications, the differed definitions of boundaries for various city dimensions, the boundary of administration powers between multiple planning departments, as well as the boundary between different planning contents for metropolitan city and small towns. In regard to these issues, local governments generally propose other substitutional plans consisting of strategic plan, metropolitan plan, county general plan and other combined plans to replace the comprehensive plan, which could be considered as the innovation for local comprehensive planning practices. In combination with these reforming practices, the prospect for the future trend of planning reforms is to reshape the boundaries, including the decentralization of administrative powers for both central and local governments, the clarification of boundaries between inflexible government requirements and flexible market demands, the ambiguity of population scope, the amplification of planning dimensions for central city and overall planning scope, the consolidation of various planning departments, the differentiation of planning contents between cities with diverse spatial dimensions.