规划与规则的协同——国土空间详细规划制度建构方略

SYNERGY BETWEEN PLANNING AND RULES:STRATEGIES FOR SYSTEM BUILDING IN TERRITORIAL DETAILED PLANNING

城市规划起源于城市秩序失控问题,规划一直试图利用科学方法协调土地利用冲突、规范城市发展。通过分割还原来控制复杂性的经典科学方法已难以适应日益复杂的人居环境需求与全域用途管制的制度需求。为回归科学领域探讨规划与秩序的关系,本文以复杂系统科学为视角,梳理规划思想的转变趋势,通过分析两种秩序的形成及空间使用行为的复杂性,深入比较规划与规则的治理逻辑差异,提出规划与规则的协同治理逻辑:基于关系原则将已存在的一般规律规则化,作为维持秩序的底线性工具,协调行为与行为的关系;基于群体互动的详细规划过程将行为类型规则空间化,协调行为类型与空间类型的关系。通过详细规划的规则化转型,促进以人民为中心的自发秩序形成。

Urban planning is contrived to bring the urban order that is out of control back on track.Planning has always attempted to use scientific methods to mitigate land-use conflicts and regulate urban development.However,the classical scientific method of controlling complexity through segmentation and reduction has been difficult to adapt to the increasing needs for diversified human settlements and the institutional needs for territorial space use control.In order to return to the scientific field to explore the relationship between planning and rules,this paper probes into the transformation trend of planning thoughts from the perspective of complex system science,and compares the differences in the governance logic between planning and rules through an analysis on the formation of the two kinds of orders and the complexity of space use behaviors.On this basis,the paper puts forward the logic in the collaborative governance between planning and rules:based on the relational principle,it turns the existing general laws into rules and makes them function as bottomline tools to maintain order and coordinate the relationship between different types of behaviors;based on the detailed planning process featuring group interaction,it actualizes the behavioral rules in space to coordinate the relationship between behavior types and space types.Through rule-based transformation of the detailed planning,the peoplecentered spontaneous order can be fostered.