从技术层面看三大规划的冲突——以江苏省海安县为例

国民经济与社会发展规划、土地利用总体规划和城市规划三大规划的冲突已经成为我国条块管理模式弊端的主要表现.以江苏省海安县为例,对海安县的国民经济与社会发展规划、土地利用总体规划和城市规划三大规划进行研究,尝试从规划的技术层面上找寻三大规划的冲突.研究发现三大规划出发点的差异与发展思路变化造成了规划从根本上难以协调,导致规划总体目标和框架的冲突,从而造成政府操作层面,即规划用地的冲突.同时探讨了造成规划冲突的技术方面原因,并对解决规划冲突提出一些有益建议.     

Finnskogene I Norge

Recently, increased attention has been paid to the importance of everyday landscapes in the Western world, and a stronger political will to involve local participation in planning processes has emerged. The authors discuss the implementation of the political will to engage the Norwegian public in local heritage planning and whether or not this new role can have a mobilising effect on heritage protection. In Norway, cultural heritage managers have established methods for identifying valuable heritage assets in cultural historic landscapes. As increased responsibility for cultural heritage management is given to municipalities, more municipalities are making their own heritage plans to improve local heritage management. The article investigates how cultural heritage management in everyday landscapes is taking place, how heritage plans are developed, how local knowledge is involved, and what assets local residents appreciate in their environment, based on an in-depth study of two medium-sized Norwegian regional towns. The results show that local stakeholders were often invited to participate in planning processes, but that their contributions were largely kept out of official plans at the final stage. Further, the study revealed that memories and personal histories related to heritage appreciations are important elements in building identity, both at a personal level and at a local level.     

Microsimulation of large-scale evacuations utilizing metrorail transit

Public transit plays an important role in emergency evacuations, particularly for areas where public transit serves as a major commute mode for commuters. Microsimulation techniques provide great flexibility in assessing different scenarios in emergency situations. Combining GIS-based network analysis with microsimulation techniques, this study developed a framework to simulate emergency evacuations using rail transit. Applying the framework to a hypothetical attack on the Pentagon, this study investigated the performance of the Washington Metropolitan Area Transit Authority’s Metrorail for large-scale evacuations. A network-based analysis was performed to estimate the number of riders in association with each metro line and station. Using VISSIM, a multi-mode micro-simulation software package, this study integrated a pedestrian model with a Metrorail transit model to evaluate the performance of the Metrorail in the hypothetical evacuations. The simulation results suggested that if the potential of Metrorail transit is effectively utilized, it could be very useful resource during a large-scale evacuation. This study demonstrated the great potential and flexibility of microsimulation techniques for evaluating complex evacuation scenarios and strategies. The framework and approach used in this study can be applied to analyze other similar situations and help develop effective evacuation plans.     

地理学在新冠肺炎疫情早期防控中的学术响应及展望

重大公共卫生突发事件如新冠肺炎等对区域人类活动有着深刻影响。作为以空间分析和人地关系为主要方法和对象的地理学,在疫情早期防控中的角色贡献以及未来趋势是迫切需要总结和讨论的重要议题。基于2020年1月20日~2月28日的文本数据,着重总结地理学者以及地理学视角下关于疫情的相关研究,地理学在疫情传播与扩散、区域规划与应急、数据与决策支撑等疫情早期防控方面做出了积极贡献,总结归纳了手机信令、百度迁徙数据等移动定位大数据与人工智能、数据挖掘、语义识别等新一代技术方法在疫情防控中发挥的支撑作用,反思提出未来应该在学科理论和防控措施方面,进一步优化风险预测模型、强化应急规划治理、加强国际合作及多学科数据交叉集成共享,从而提升应对重大公共卫生事件的科学性、主动性和高效性,为后疫情时期经济社会管理与空间治理提供科学支撑和依据。     

乡镇级“规土融合”实现路径与技术创新——基于武汉乡镇总体规划实践的探讨

在我国的规划体系中,城乡规划与土地利用规划是空间规划的核心,两者同时管理城乡用地,以实现土地资源的合理分配。两规由于在管理体制、技术方法、审批实施等方面存在矛盾,使得城乡用地管理效率低下。乡镇作为联系城乡的过渡地带,用地矛盾尤为突出。实现乡镇级"规土融合"对于调控城市边缘区用地矛盾、实现城乡统筹发展具有重要意义。首先从理论层面分析两规在乡镇级编制实施中的技术性矛盾,包括规划期限与规划范围、用地分类与统计口径、规划用地规模与布局、空间管制分区与要求、规划审批层级与标准5个方面,并从管理体制、规划思路、规划重点和法律依据方面探讨其矛盾产生的根源。进而,基于武汉市乡镇总体规划实践,从技术创新的角度系统总结了乡镇总体规划的技术程式,旨在从相对微观的层面进一步诠释"规土融合"理念的实践操作模式。     

国外空间规划研究与实践的新动向及对我国的启示

空间规划是可持续发展必不可少的公共管理工具。20世纪90年代以来,人们认识到空间规划应该具有协调和整合空间发展的功能,而不仅仅是部门性的土地利用管理体系;应该关注地域的可持续发展,而不是一味地追求增长;应该关注不同利益人之间共识的形成,而不是简单地分析一定地域空间开发的适宜性和先后顺序。20世纪90年代以来国外空间规划实践的一些新动向： a) 重新分配空间规划的权利和职能; b)注重全纳性的参与; c) 重视空间规划的协调与整合; d)强化空间规划的环境维度; e)增强空间规划的灵活性。基于此对我国的空间规划实践得到几点启示： a)空间发展的战略框架和行动计划相结合; b)形成适合于我国的规划参与机制; c)在增强规划约束性的基础上增加灵活性; d)强化区域层次的空间规划; e)突出空间规划的公共管理职能。     

Social and Cultural Aspects of Natural Hazards Perception and Response

Focus groups conducted in two urban areas in New Zealand explored perceptions of natural hazards and disaster preparedness. The groups were structured by socio-economic status, gender, age, and cultural background. Participants were generally aware of likely major hazard events but few maintained emergency kits or had prepared emergency plans. People held an optimistic attitude, believing they could cope with disaster. Differences amongst the groups included the inability of lower socio-economic groups to afford emergency kits or insurance and evidence of strong supportive networking among Maori and Samoan groups.     

规划管理与部门协调的国际经验及其对“多规融合”的启示

从日本、美国、英国3个国家案例分析中总结出规划管理和部门协调的经验并探讨对中国"多规融合"实践的启示。日本的国土规划体系包含多类规划,但规划间关系明确,各部门交叉进行规划制定,并在规划实施中紧密配合。美国一般对规划不进行集中统一管理,各个城市和区域的规划实践比较多元,相关法律对于部门协调有明确的规定。同时,综合规划与城市投资计划、环境影响评估相协调,部分州通过城市增长管理来控制城市蔓延。英国的空间规划体系比较单一,从中央到地方呈现二级或三级体系,由地方政府制定地方发展框架总领空间规划。结合国外经验的启示,从制度改革、法律保障、规划内容与实施三方面为国内"多规融合"实践提出建议。     

Analysis of the geographical accessibility of neurosurgical emergency hospitals in Sapporo city using GIS and AHP

To improve the geographical accessibility of neurosurgical emergency hospitals for elderly people, we developed several alternative site plans for a new neurosurgical emergency hospital in Sapporo, Japan. Hospitals, population data, routes, and the numerical information for the Analytic Hierarchy Process computations were input into a Geographical Information System. Pairwise comparison revealed the following weights which were assigned to each of the four criteria: 0.674 for availability of hospital beds; 0.169 for the maximum road distance of the shortest routes; 0.101 for the elderly population within a 3‐km radius; and 0.056 for the median road distance of the shortest routes. The alternative proposed could cover 4000 more elderly people in the 3‐km radius of the hospitals. The integration of Geographical Information Systems and the Analytic Hierarchy Process constitutes a powerful tool for analysing traffic conditions in mid‐sized cities and for suggesting city planning to improve prognosis of stroke.     

A Review of “India and South Asia: Economic Developments in the Age of Globalization”

Any analysis of health service problems facing the world today must consider that these problems exist in a geographic context. This fact has led to an increased need for accurate and current information to support emergency planning and decision making. In this article we combine geographic information systems (GIS) and neural networks for performing health emergency assessments and generating hazard maps that show areas that are potentially at high risk for emergencies. Through the use of neural networks we predict the location of future emergency events. On these events we use a kernel density estimator to create maps of areas that have a high risk for future emergencies. As a result, emergency services will know in advance where there is a high possibility of an emergency event occurring and can formulate a response, thus improving incident management and health planning. For example, the service can locate ambulances in places near the expected emergency cases, minimizing response time. The approach was tested in stroke-event analysis in the city of Athens, Greece.     

Bridging the knowledge divide between public and experts using PGIS for land use planning in Malaysia

Ineffective public participation in land-use planning contributes to the lack of communication and understanding between the public and experts, acting as a barrier to successful planning outcomes. In this study, we assess whether Participatory GIS (PGIS) is a suitable method to bridge the communication gap between the public and expert knowledge for planning in the developing country context of Malaysia. Through a mixed methods approach, we investigate whether expert knowledge converges or diverges with the public's perceived knowledge obtained through a PGIS process and assess the potential benefits of PGIS from public and expert planning perspectives. The results indicate more convergence than divergence in knowledge and perspective, indicating that a PGIS process can communicate local knowledge to planning authorities to inform land use and development planning in Malaysia. Both the public and planning experts recognize the potential benefits of PGIS, but successful implementation will require major changes in traditional Malaysian public participation processes.     

新时代的国土空间规划体系重建与制度环境改革

在全面推进生态文明建设背景下,急需建立适合中国国情的国土空间开发保护制度和国土空间规划体系,这是新时期建立空间治理体系的重要任务。在国务院新一轮的机构改革背景下,空间类规划的编制职能向自然资源部集中,急需探索和建立全国国土空间规划体系的总体框架和制度环境改革的推进路径。研究表明：国家国土空间规划体系的重建取决于三个方面,一是依赖于部门的职能整合,二是国土空间规划体系的整合与重构,三是依赖于制度环境改革。因此,在机构改革逐步完成的形势下,需要从国土空间规划体系重建与制度环境改革两个路径着手,从国家、省域、市县等层面阐述了中国国土空间规划体系的重建思路,构建五级四类、上下衔接、分级管理的国土空间规划体系。从确定国土空间开发保护制度、专业人才培养、规划资质管理、推进立法等几个方面推进制度环境改革。最后从推进国土空间规划立法、审批程序前置和推进相关法律法规修改完善等方面提出具体举措,以确立国土空间规划的法定地位与统领作用。结合新时期国土空间规划编制,提出了尽快出台国土空间规划编制办法和技术规程、重新调整中国国土空间规划编制的时序安排、加强技术队伍建设等若干建议。     

Planning Beijing: socialist city,transitional city,and global city

Cities are centers of economic, social, and political change, and urban planning is a process responding to and guiding urban change and development. In the Maoist era and under the influence of socialist ideology, China limited urbanization while promoting industrialization, and urban planning served as an instrument for socialist construction. Since the reform of the late 1970s, Chinese cities have experienced unprecedented growth and restructuring. However, the gradualist, exploratory reform—exemplified by Deng Xiaoping’s slogan “crossing the river by feeling the stones”—makes Chinese cities constantly change without clear directions for future development. This paper uses Beijing as a case study to analyze changing institutional and global contexts underlying the transformation of Chinese cities, and planners’ responses and dilemmas in making plans and implementing them. We found that market reforms, rapid growth, and dramatic change make urban master plans quickly out of date, forcing Chinese planners to frequently revise these master plans. We also found that the content of urban master planning in China has broadened from physical planning, and Chinese planning has adapted to market reform through utilizing concepts of visioning, flexibility, and governance. Increasingly what we call a “hybrid” form of planning is arising in which global concepts and Chinese ideas interweave in order to direct the shape and form of the Chinese metropolis.     

面向全域全要素的广州市国土空间规划传导体系研究

建立科学清晰的传导体系是保障规划治理效力的重要前提。随着全国各层级国土空间规划编制与改革的推进,空间规划体系雏形初显,明确各级、各类规划编制内容、管理权限和传导路径,已成为各级政府十分关切的问题。文章基于广州国土空间规划试点的编制实践,针对原有规划体系中指标分解难、控制线管控标准不一、用地管控尺度和精度不一、设施管控缺乏分级等问题,以全域全要素管控为目标,提出了广州建立“四级三类”规划传导体系及实施评估监督的建议,认为一是要在纵向传导上,强化规划编制和“市—区—街道”行政管理体系的衔接,构建“市域—区—单元—地块”4个纵向传导层级,重点围绕“目标战略、底线管控、功能与用地管控、设施管控”4类核心管控内容明确各层级编制内容和深度;二是要在横向传导上,构建专项规划与各层级规划的“联系-反馈”机制,推进专项规划与总体层面规划同步编制,达成管控要求、核心指标等方面的共识,并加强详细规划层面的设施评估反馈,细化详细规划在指标、名录、位置、结构4个方面的传导要求。     

城市管治、区划调整与空间整合——以常州市区为例

以常州市区为例,重点从产业空间管治的角度,分析了在行政区划调整下城市管治重构与空间整合。通过分析现状开发区在主导产业选择、产业空间布局与区位选址方面的问题,论文认为,当前制度框架、经济政策与要素集聚、社会文化及空间规划等方面是造成目前中心城区之间管治冲突的主要原因;行政区划调整虽然有利于城市规模的做大和某种程度上规避强大的县级市与中心城市之间的日益突出的矛盾,但当前的发展并没有有效地削减这两大空间单元之间的本质冲突。进而,论文又从制度重构、政策导向与空间整合三方面重点分析了要构建有效的市区管治模式、实现空间协调发展与整合。     

决策滞后失误效应探析

在制定区域发展规划和公共政策决策及实施公共设施项目建设的过程中,往往会出现诸如规划因条件改变又需重新调整、某一重大政策的引患难愈、城市建设中的反复拆建等问题。其出现和发生并非偶然,而是受决策团体的认知、经济社会与科学技术的发展、制度建设和环境条件等多方面因素的共同影响,是社会发展过程中必然会发生的规律性现象,称之为"决策滞后失误效应"。籍此,从系统科学角度剖析了造成决策滞后失误效应的主客观影响根源,提出了决策失误效应的应对方略。     

日本新国土规划考察和辽宁省 新一轮国土规划的初步设计

分析了我国第一次国土规划的经验教训,剖析了日本历次国土规划及新国土规划的特点,提出了辽宁省国土规划的总体框架。我国第一次国土规划在摸清资源环境家底方面取得了很好的成效,但实施效果不理想。主要原因在于内容太宽泛,针对性不强,更缺乏法律依据。日本曾进行了5次国土规划,都取得了一定的成效,目前正组织实施第6次国土规划。日本国土规划的成功在于抓住关键,突出重点;重视法律法规建设;依据社会经济发展和国际国内形势的变化及时调整国土规划内容;重视国土的形成和培育。中国的国土环境与日本具有一定的相似性,中国新一轮国土规划应在认真学习日本的基础上努力做到"五新"(观念新、切入点新、理论指导新、方法手段新、内容体系新)。辽宁新国土规划要跳出国土看国土,突出振兴与可持续发展主题,以区域协调发展理论主线,重视目标导向与问题导向相结合,全面利用"4S"技术。     

城市收缩时代的适应战略和空间重构 ——基于日本网络型紧凑城市规划

通过对日本网络型紧凑城市规划的发展机制、发展政策和代表性案例--富山市和宇都宫市的探讨,归纳总结了日本中央和地方城市政府的收缩城市规划战略政策和空间重构规划方案,借此为陷入收缩境况的中国城市在战略取向和空间重构方面提出有益启示：1）勇于接纳和面对人口减少和城市收缩这一客观事实,积极采取激活城市收缩所带来的机遇的适应性战略,而不是采取促使人口再度增加的应对性战略;2）充分考虑人口减少和老龄化社会并存的城市收缩时代特征,通过城市功能集聚的“据点化”战略和公共交通系统主导的“网络化”战略,构建多中心连接的网络型紧凑城市空间结构;3）根据人口数量变化预测结果,动态地推动城市规模的精明收缩,开展匹配存量规划或减量规划的规模适当化规划。     

居民城市公共安全感知与社区环境——基于北京大规模调查问卷的分析

新型冠状病毒肺炎疫情的爆发使得民众对公共安全问题的关注到了前所未有的程度,社区作为社会治理基本单元,在防疫减灾中所发挥的作用尤为突出。本文基于北京2019年城市体检问卷调查数据,采用多层线性模型检验个体属性及社区环境指标对公共安全感知的影响。研究发现,公共安全感知的差异主要来自个体属性的不同,老年人及健康状况一般或较差的群体,以及低收入、低学历、待业人群的安全感相对较低;安全感的社区差异显著,人口稠密、公交线路密集的社区居民安全感较低,道路交叉口较多的社区安全感较高;社区离Ⅰ型应急避难设施和医院的距离越近,居民安全感越高,但中小型设施影响不显著;良好的社区社会环境对居民安全感具有非常明显的正向影响,但租户很难从物业管理水平的提高中获益。据此本文提出了建设安全韧性社区的若干建议。     

A Study of Governance Arrangements for Land Use and Natural Resource Management Planning in Cape York Peninsula

Complex intersecting social, economic and environmental dilemmas in Australia's Cape York Peninsula present a number of challenges for planners seeking to develop and implement land use and natural resource management (NRM) plans. There have been five different attempts at land use and NRM planning in Cape York Peninsula over the last 20 years. These processes have (to greater or lesser extents) failed to deliver community-owned and government-supported plans to guide development and/or the management of the region's natural resources. The region is remote, sparsely populated, and home to a significant Indigenous population. Much of the contestation within the region surrounds the access, use and ownership of the region's internationally valuable natural resources. This paper reviews, from the literature, the relevancy and applicability of criteria for best practice planning and governance. A range of identified best practice governance and planning principles are applied to assess the governance arrangements for planning in the Peninsula. The paper finds that decision-making arrangements for land use and NRM planning in the Peninsula are still in their infancy and are inadequate to support effective outcomes. The paper concludes that broader attention to best practice principles in governance for planning is needed to improve planning outcomes.