中国城市规划顶层设计的演化特征研究——基于中央政策(1956-2020年)的文本分析

EVOLUTIONARY CHARACTERISTICS OF TOP-LEVEL DESIGN OF URBAN PLANNING IN CHINA:TEXTUAL ANALYSIS BASED ON POLICIES ISSUED BY THE CENTRAL GOVERNMENT(1956-2020)

梳理中国城市规划发展进程是推动实现中国式现代化城市发展目标的重要基础。构建城市规划“决策—实施—组织”三维分析框架,采用文本分析法,对中央政府在1956-2020年期间颁布的城市规划政策进行量化分析,揭示城市规划顶层设计的演化特征。研究发现,城市规划决策的目标确定性不断增强、民主化水平有明显提升,但规范化、科学化水平仍需加强;近年来城市规划实施更加凸显控制标准化、监督常态化;城市规划顶层组织的职能长期处于“碎片化”,部门合作水平不高。未来要继续加强城市规划的制度化建设,尤其要重视组织职能的完整性和集中性,从根本上提升城市规划的现代化水平。

Summarizing the development process of urban planning in China is an important basis for the realization of Chinese-style modern city development.This paper establishes a threedimensional analytical framework for urban planning comprised of“decision-making,implementation,and organization”,and adopts the textual analysis method to conduct a quantitative analysis on urban planning policies promulgated by the central government of China from 1956 to 2020,so as to reveal the evolutionary characteristics of the toplevel design of urban planning.The following results have been found:in addition to an increasingly definite objective and an enhanced democratic level,urban planning decision-making needs to be strengthened in terms of standardization and scientific basis;in recent years,the urban planning implementation has attached more importance to the regulation standardization and regular supervision;due to insufficient cooperation,top-level urban planning organizations have long been“fragmented”in terms of functions.Accordingly,efforts should be made to continue to strengthen the institutionalization of urban planning in the future,especially the integrity and centralization of organizational functions,so as to fundamentally improve the modernization level of urban planning.