Understanding strategic spatial planning to effectively guide development of urban regions

Strategic spatial planning is increasingly practised throughout the world to develop a coordinated vision for guiding the medium- to long-term development of urban regions. However, from a theoretical and conceptual perspective, strategic spatial planning is hard to grasp, as it is multidimensional, embedded in sociopolitical and institutional complexity and highly context-dependent. Moreover, current planning debates mainly focus on the outputs of the strategic planning process while largely neglecting the impact that strategic spatial plans can have on urban transformations. Here, we show an empirically-based analytical framework grounded on an analysis of 21 European urban regions, representing the key components of plan-making and plan-implementation as well as the main interrelationships among them. The proposed framework (SPlaMI) reflects current planning practices and intends to contribute towards consolidating a European understanding of strategic spatial planning while providing the basis for dialogue with broader discourses on sustainable development in a global context.     

从方案到政策:"生态优先"的广州空间规划

"生态优先"是城市规划领域中提及最多的规划理念,但是如何实现这个理念值得研究。本文首先分析了国内外"生态优先"的空间规划实践,将这些实践总结为"方案"和"政策"两个层面。接着,回顾和反思了广州这两个层面的工作,总结了广州"从方案到政策"的路径。战略规划确定了市域的生态结构、形态,为总体规划的空间方案提供支撑。而总体规划通过生态的综合研究进行了四区划定,并结合市域生态结构,形成市域基本生态控制线的形态。进而,生态专项控规、基本生态控制线立法、生态保护财政转移支付等工作将使方案转变为指导实施的政策。     

In Pursuit of New Approaches to Strategic Spatial Planning. A European Perspective

This paper argues that working with the proper client, selecting the appropriate content and designing the vital arenas/forums is crucial for any kind of public strategic planning. The paper combines views reflected in planning literature with the accumulated experience of the author's planning practice and the more general practice of three recent plans at different scale levels: the European Spatial Development Perspective, the Second Structural Outline Benelux and the Structure Plan for Flanders. After reflecting on public strategic (spatial) planning as such, criteria are formulated regarding its content, taking into account the core of public strategic planning and the complex problems and developments taking place in real life. To increase the likelihood that a plan will be realized it needs a close dialogue with those whose cooperation is necessary for its implementation. Such a dialogue requires settings, arenas (formal and informal) and rules of behaviour with respect to the different stakeholders. Therefore a set of criteria arenas and forums should comply with are listed. Against this background the paper provides a first look at the issues of client, content and arenas/forums as dealt with in three recent strategic plans. Finally, the paper provides some first tentative conclusions.     

论构筑我国城市总体规划改革的法制化框架

近几年来,"概念规划""战略规划"等规划类型在我国各城市中不断出现,由此引发了规划界对城市总体规划改革的探讨.应从加强城市规划和管理的法制化、树立法律意识的角度,构筑城市总体规划改革的法制化框架,即基于已有法律,尽快对区域规划进行立法,将"概念规划""战略规划"等规划类型纳入法制轨道,建立信息反馈、法律监督评价和责任追究机制.     

The Strategic Incrementalism of Lahti Master Planning: Three Lessons

ABSTRACT

The city of Lahti, Finland, has developed a unique policy of combining city strategy work with strategic master planning in an iterative process. It thereby offers insights to research on strategic spatial planning, exemplifying how institutional frameworks of statutory planning can be utilized as resources in strategic planning. Three lessons from the Lahti case are drawn: (1) utilize the moments of opportunity in the institutional environment of statutory planning, (2) shift the focus from the level of ‘strategic plans’ to the policy level of strategy work, (3) develop strategic planning as a platform for diverse ‘languages’.     

国土空间规划体系中的城市规划初论

国家关于统一规划体系与统一国土空间规划体系的顶层设计已经完成,在当前及未来一段时期内,需要进一步深化规划体系改革,明确国土空间规划体系中城市规划的地位和作用。建议在市县级国土空间规划中发挥城市规划在城市空间产品供给过程中的独特优势,城市总规发挥宏观的导控作用,城市详规发挥底层的管控作用,将城市规划融入国土空间规划体系,为引领城市高质量犮展提供规划保障;相应地,要增强中长期发展规划的研究和支禕,为国土空间规划体系中的城市规划制定与实施提供战略指引。此外,要适应国土空间规划体系新要求发展城乡规划学。     

The historical rise and fall of community facility provision standards in the metropolitan planning of Melbourne

Underpinning strategic metropolitan planning is a host of planning standards that deal with the design and regulation of the built environment. This paper is particularly interested in identifying to what extent planning standards dealing with the provision of public open space had been used in strategic metropolitan plans for the city of Melbourne, Australia. Using a historical perspective, this paper traces the historical adoption and adaption of community facility delivery standards over a 100-year period, via the analysis of several metropolitan plans of Melbourne. Their initial adoption and then progressive demise is attributed to a variety of factors including shifts in planning practise, regional politics and the fluctuating economic fortunes of Melbourne since the mid-1970s. This city-specific example is considered to be unique not only because it captures the shifts that had taken place in the metropolitan planning of Melbourne but it also focuses upon the provision of community facilities which remains a much neglected feature of historic metropolitan strategic planning.     

园区系统规划:转型时期的产业园区智慧发展之道

转型期我国产业园区的发展面临产业定位不清、产业关联度不高、产业集聚效应不明显、园区规划缺乏引领力量、园区缺乏自我循环发展能力等困境.应以园区系统规划为突破口,统筹园区战略规划、产业规划,落实园区总体规划和控制性详细规划等空间法定规划,融合重大项目规划和投融资规划,打通园区设计和景观规划等工程建设规划,对接土地利用规划,...     

乡镇级国土空间总体规划的必要性、定位与重点内容

在充分认识我国乡镇总体规划的基本特征和问题的基础上,明晰国家空间规划体系改革对乡镇治理体系、城乡融合和高质量发展的要求,指出我国乡镇国土空间总体规划的必要性。继而在研判国际经验和县乡事权划分等的基础上,提出了乡镇国土空间总体规划的定位特征是传导落实县市规划、创新镇区空间用途管制方式和统筹引导详细规划编制。并指出乡镇国土空间总体规划的重点内容应包括自然资源管理、国土空间开发利用、镇城空间格局、镇区空间布局和村庄建设管控等。     

Words Matter: The Importance of Issue Framing and the Case of Affordable Housing

Recent studies have shown substantial variation within and between states in the levels of local planning for hazardous materials emergencies. To explain these variations, literature on strategic planning, disaster planning and team effectiveness was used to construct a model of Local Emergency Planning Committee (LEPC) effectiveness in developing emergency plans. Data from Michigan LEPCs showed that emergency planning outcomes (e.g., quality and degree of completion of critical planning tasks and submission of plans for approval) were correlated with internal factors such as member inputs, staffing and structure, and emergency planning resources. External factors such as community support and recent hazard experience also affect success, possibly by endowing emergency planning with importance for LEPC members either directly (e.g., recent evacuation experience) or indirectly (community support arising from the high priority given emergency plans by others). These results suggest that community planners should take such strategic actions as developing community support and redesigning the LEPCs structure to be more effective in preparing for hazardous materials emergencies.     

Urban growth and strategic spatial planning in Johannesburg,South Africa

The article examines the way strategic spatial planning in the City of Johannesburg has attempted to reshape existing and emerging spatial patterns of a divided sprawling city, focusing particularly on current initiatives to link spatial planning and infrastructure development through the growth management strategy. The strategy has been well institutionalised in the municipality, with strong political support and links to budgets. New public transport systems are being introduced, linked to spatial plans, although some of these developments have been contested. While the property industry is responding positively to some aspects of planning, moving towards greater spatial equity remains challenging. The planning-infrastructure link seems to be strengthening planning, but it is a demanding approach which requires a very different form of planning than the traditional master planning.     

德国空间秩序规划与城市规划、专项规划的空间要素管理与协调

德国经过长期的立法与规划管理实践,形成了联邦、州和地区的空间秩序规划与城市规划、专项规划相互协调的空间管理机制。三者除了在空间要素上各有侧重点,其依法管理的约束对象也存在差别。综合的、跨地方的、指导性的空间秩序规划通过具有强制约束力的目标约束公共机构,基于地方自治的城市规划依法对具体的建设实施进行管理,针对特定用途或综合用途协调的专项规划在特定项目上具有优先权。本文基于对德国空间研究与州域规划学会和杜塞尔多夫行政区地区发展32号办公室的采访,对比了三类规划的空间要素,对法定的"双向反馈原则"和有关冲突协调的法律规定进行解读,总结了德国规划实现有效空间管理的协调机制,为我国国土空间规划体系的依法构建提供借鉴。     

新时期城市总体规划编制变革的实践特征与思考

空间规划管理权的整合,将推进空间规划体系的建立,从原来的"多规争一"走向"多规并一".对城市总体规划编制变革的实践进行了研究,提出应放弃门户之见,在"多规"的编制力量、管理部门"合一"的背景下重新考虑城市总体规划(或者是城乡总体层面的规划)的转型.在对实践进行总结的基础上,对未来的变革思路进行了思考,提出改革建议:在空间的资源观与理论范式方面,应围绕资源的发展权重构规划事权,应从技术理性走向多元协调;在规划的政策性与成果表达方面,应加强规划的战略与政策研究使之真正发挥引领性,在成果的表达方面应体现政策性与逻辑性;在编制的组织与控制方法方面应加强各方面力量的协同性,在控制方法上应注重结构性与层次性.     

Assessing the Integration of Landscape Connectivity into Comprehensive Spatial Planning in Spain

The integration of landscape connectivity criteria into spatial planning through ecological networks formed by coherent open space systems has received increasing attention in Europe in the last few decades. In Spain, such integration began recently, in parallel with the development of a supralocal comprehensive spatial planning policy, which was practically non-existent a decade ago. An assessment of such integration is reported here, specifically on ecological networks inclusion within the spatially explicit zoning regulations of 11 regional and 66 subregional plans which had been approved in Spain until the end of 2012. At the same time, a survey was conducted among 22 Spanish and 14 European practitioners in order to detect possible deficiencies and opportunities to optimise this integration in Spain through a comparison with other European countries. An increasing integration of ecological networks into supralocal plans was observed, especially in subregional plans approved in the last five years, coinciding with a period of greater development in supralocal spatial planning policy, the end of the Spanish speculative housing bubble and new national legislation which encourages the promotion of ecological networks. However, the integration process is very uneven because homogeneous guidelines are not applied in the different regions. Spanish practitioners discerned wide room for improvement. The integration of ecological networks into multiscale spatial planning should be optimised in Spain, including improvements in local planning, strategic environmental assessment and training of planners in this topic.     

我国空间规划协调问题探讨——空间规划的国际经验借鉴与启示

与多数发达国家的空间规划融合在一个体系中不同,我国的制度特征和基本国情决定了其空间规划体系内部构成的多元化,一个行政层级往往有不同的空间规划并存,是一种并行体系.因此,空间规划协调不仅要考虑不同层级规划的上下衔接,还应该考虑同一层级不同种类规划之间的相互协调.本文借鉴发达国家空间规划体系经验,结合我国现行空间规划体系的问题所在,提出加强我国空间规划协调的原则及解决对策.     

Reframing Large Transport Infrastructure Plans: A Study on European Corridors with a Focus on North-eastern Italy

The European Union is promoting and investing in large transportation infrastructure plans and programmes to enhance transnational accessibility and territorial competitiveness. However, the recent crisis has shed a new light on the planning and programming of these infrastructures. Competition for scarce resources and more sensible public demands force decision-makers to better argue and deliver decisions and projects. Italy provides an exemplary case of poor planning and policy-making deriving from limited visions combined with only tactical and reactive politics. For decades, public authorities and project promoters have fostered a huge project of high-speed rail development, without appropriate consideration of territorial conditions, community demands or downside scenarios, whilst benefit overestimation has long hindered investments in other possible strategic infrastructures and policies. The current recognition of the Baltic–Adriatic as essential among European corridors provides the occasion to rebalance discrepancies and reframe plans in Italy. The proposed approach aims to reconsider infrastructure planning as a ‘wicked problem’ implying not absolute, but more or less good solutions depending on contextual and feasibility conditions and to promote visions based on vertical and horizontal subsidiarity, where cities and regions should play a strategic role as key stakeholders in the spatial macroscopic transformations.     

中国战略空间规划的复兴和创新

通过论述国外战略空间规划概念的形成、定义、特征及世界各国的认知和实践,分析战略空间规划与城市和区域规划的发展演变关系,阐明了战略空间规划是社会政治经济等综合规划向空间规划的回归,指出战略空间规划不仅是一种技术手段,而是一个政治过程的本质属性,强调以人居环境科学为基础,借鉴国外空间规划理论和实践最新成果,发扬我国空间规划优良历史传统,在实践中构建我国战略空间规划理论研究体系,改革规划管理体制,推动理论研究和实践的发展,实现中国战略空间规划的复兴和创新。     

新国土空间规划体系下交通规划的适应性变革——以厦门为例

从"多规合一"到国土空间规划体系的提出,充分体现了国家规划管理体制和规划治理思路的转变。在此背景下,交通规划作为国土空间规划体系的一部分也面临迫切的深层次变革。本文梳理了我国空间规划体系提出的过程和含义,基于现有规划体系中交通规划所处的地位和作用以及与其他城乡规划的联系,分析了在新国土空间规划体系下,交通规划变革的必要性;进而提出了交通规划的变革要点:首先,交通规划的变革要认识新国土空间规划体系下交通规划面临的主要矛盾,明确交通规划的作用,厘清交通部门与城乡规划各部门之间的职能关系;其次,确定交通规划与空间规划体系的适应性发展,即交通规划既需要在管控层面与空间规划体系的规划思路、分级管控和划定的"三区三线"相协调,也需要在发展上充分体现新时代交通强国战略需求。最后,以厦门市为例,介绍了厦门对于建立空间规划一张蓝图的探索,分析了厦门交通系统规划与全域空间规划一张图的适应性,以期为新国土空间规划体系背景下的交通系统规划提供思路借鉴。     

From Projects to Strategies: A Transaction Cost Approach to Politicians' Problems with Strategic Transport Planning

There is a strong trend in Norway towards strategic transport planning at the national level. The new type of integrated and holistic plans requires that members of the national parliament concentrate on strategic decision making and management by objectives, refraining from making decisions on single projects. Interviews with members of the national parliament's Standing Committee on Transport and Communications in 1997 and 2001 are used to study what the politicians mean by strategic transport planning and to present their expectations about its implementation and outcome. The problems experienced by elected representatives in rising above the project level and building transport policy on national strategic plans are the centre of attention. Increased efforts at the strategic planning level induce the national assembly to delegate project level decisions. The transaction cost politics approach sheds light on the question of whether or not members of parliament should delegate most project planning decisions about highways to the executive and what actions planners can take to make delegation more attractive.     

城市规划实施评估的两种视角

随着规划理论和实践的发展,学术研究领域对城市规划产生的影响以及规划实施情况的评估越来越重视。然而在中国的规划实践过程中,鲜有系统的针对城市规划实施情况及其对现实城市空间发展影响的研究。本文通过文献综述,整理和介绍了从两个视角出发的城市规划实施评估方法：基于规划现状一致性的评估方法和基于表现性能的评估方法。通过对以上两种评估方法的理论框架和评估指标及步骤的详细研究,本文发现不同评估方法的选择取决于研究者对城市规划的不同认识。以上两种评估方法由于采取不同的评估标准、步骤和技术,适用于对不同规划单元和城市开发类型的评估。本文最后分析了以上两种规划评估方法在中国快速发展的规划实践中应用的迫切性和必要性,及其对更为广泛的城市规划实践的借鉴意义。