Planning with complexity—how do we deal with stakeholder and spatial heterogeneity in land use planning?

Geografisk Tidsskrift, Danish Journal of Geography 105(2):23–37, 2005

As a reaction to the 'top-down 'approach to rural development during the 1970's and 1980's, and in line with the increased focus on ‘putting farmers first’ (bottom-up) through local participation, new and integrated approaches to natural resource management (NRM) have been launched to generate sustainable development. This paradigmatic change has greatly influenced land use planning. Some of the implications involved in this change are discussed in this paper and based on empirical data from Tanzania and Botswana. In this paper we will discuss three critical issues related to land use planning for sustainable NRM: the complexity of livelihood strategies at the local level, the role of different stakeholder interests and the importance of spatial scale considerations. The discussion emphasizes the importance of understanding that the different and often erratic resource endowment of the rural households influences the strategies these households follow in order to meet their overall needs, rather than ‘simply’ maximizing agricultural yields. Furthermore, the importance of spatial scale, in relation to both different stakeholder interests and their needs will be discussed. The paper highlights the need to take community heterogeneity into consideration in land use planning if sustainable NRM is to be achieved in the future.     

Conflict in Common: Heritage-making in Cape York

The outstanding natural and cultural values of Cape York have been acknowledged for decades, but those decades have been characterised by deep conflict. Non-government organisation intervention in local politics has seen a forceful push for nominating some or all of the Cape York Peninsula as a World Heritage Site. We illuminate the authorised heritage discourse at work in heritage-making, and highlight contested issues of ownership, governance, authenticity, and value. These themes contribute to the possibility of marginalising the voices of local people who wish to contribute to heritage-making in Cape York. Politics infuses all aspects of heritage-making in Cape York, and the specific experiences on Cape York reflect larger political processes occurring in World Heritage discourse. The paper draws on interviews undertaken in May and June 2012.     

论土地利用总体规划的编制与土地资源的保护

社会经济保持续发展的基础在于土地资源的可持续利用,其关键是保护好农业用地资源。科学地编制土地利用总体规划并切实实施规划是保护好土地资源,以保证其可持续利用的重要措施。然而,近年来在土地利用总体规划的编制中存在各种问题和弊端,既影响规划的实施,也下利于土地资源的保护,必须认真采取措施加以克服。     

“规土融合”的技术体系、管理模式创新及发展展望——以武汉市为例

在"多规合一"发展的背景下,以武汉为例,聚焦城市规划与土地利用规划融合("规土融合")在地方层面的实施路径与发展目标。系统梳理了其在体系结构、技术语言、信息平台等方面的技术革新策略,同时概括出管理模式创新中协调成本内部化、转变政府角色、倡导交往理性、加快接轨市场等有益尝试。此外,强调武汉实践中"两规"与"规-土"的内涵差异,丰富对规划融合发展目标的认识,以期为相关地方实践带来有益启示,也为宏观规划体系改革提供自下而上的思考视角。     

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。     

对机构改革背景下空间规划体系构建的思考

“建立空间规划体系”是自然资源部的一项重要职能,也是整合空间规划、保障空间治理机制有效运行的必然要求。在借鉴国外空间规划体系的基础上,按照适应中国政治体制和法律基础、适应未来空间开发和空间治理变化的需求,提出构建层层传导的空间规划体系确保国家重大战略部署得以落实;提出在微观尺度空间规划进行空间开发权与土地利用权的分配,作为实施空间用途管制的法律依据,保障地方多样化、灵活化的发展;通过构建“宏观政策性/指导性规划—中观衔接性规划—微观实施性规划”的空间规划体系,为国家建立和完善空间规划体系、提升空间治理能力提供参考。     

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。     

Green space planning and land use: An assessment of urban regional and green structure planning in Greater Copenhagen

Geografisk Tidsskrift, Danish Journal of Geography 106(2):7–20, 2006

In its Regional Plan of 2005, The Greater Copenhagen Authority (abbreviated as “HUR” in Danish) places special emphasis on the future recreational values associated with the regional green structure. In this paper, the development of the urban green structure in Greater Copenhagen is elaborated upon, focusing on land use changes and the effectiveness of regionally coordinated planning measures. EU MOLAND data are used to analyse the development of the region's green structure during the period 1954 to 1998. Analysis of two “green wedges” within the green structure illustrates that the development of the green recreational areas is the result of both formal and more informal planning initiatives. Development has shown equal phases that correspond to the applied regional planning measures and the general economic conditions. However, local preferences in the involved municipalities likewise have played an important role and have resulted in different urbanisation pressure within the two wedges. Land use has transformed from an agricultural to a primarily recreational landscape. In some areas, however, urbanisation pressure has resulted in residential and green industrial areas instead of the planned recreational land use. Based on its historical development it is concluded that future preservation and development of the green structure in Greater Copenhagen requires regional planning measures to be incorporated into municipal plans. In this way the increasingly independent municipalities will comply to objectives of the Regional Plan 2005.     

Realistic Sustainability? Urban Transport Planning in Wellington,New Zealand

Urban transport systems have key roles in supporting environmental sustainability. New Zealand's transport planning arrangements are promoted as a model by agencies such as the World Bank. This paper explores the New Zealand transport planning framework using a case study of the Wellington region's strategic balancing of transport modes and projects. The paper argues that despite some positive rhetoric, concerns about the sustainability of transport planning in Wellington remain. The paper concludes by discussing the need to reassess New Zealand's national framework, and identifies some directions for reform.     

深圳城市规划对土地利用的调控效能

城市规划实施效能研究已开始由定性走向定量,引入GIS空间分析技术,利用相关政府部门提供的资料和实地调查资料,以深圳为案例从定性与定量角度系统全面地开展了城市规划对土地利用的调控效能研究。研究结果表明城市规划对土地利用调控效果显著:①城市规划对深圳城市空间结构的控制与引导十分有效,使得其在快速发展过程中仍然保持良好的城市空间结构。②城市规划对特区土地利用的调控效果较好,城市建设基本按照规划进行;而城市规划对特区外土地利用基本失控,城市建设无序蔓延,城市规划没有起到应有的调控作用。③城市规划管理对土地利用也具有重要的调控作用,《建设用地规划许可证》的规划审批用地挤占了大量耕地、园地、林地和水域等,引起了深圳各区域土地利用的巨大变化。     

Assessing participatory GIS for community-based natural resource management: claiming community forests in Cameroon

This paper critically reviews and analyses participatory GIS (PGIS) and participatory mapping applications within participatory spatial planning for community-based natural resource management in developing countries. There is an often implicit assumption that PGIS use is effective, in that it meets content needs, satisfies underlying local stakeholder interests and therefore is a tool for better governance. The analytical framework looks at participatory spatial planning performance with respect to key dimensions of governance, especially the intensity of community participation and empowerment, equity within communities and between 'governed' and 'governing', respect for indigenous knowledge, rights, ownership, legitimacy, and effectiveness. Specific development focus is given by a case study using participatory mapping and PGIS in community forest legitimization, planning and management in Tinto, Cameroon. 'Good governance' criteria are applied ex-post to the implementation procedures, the geo-information outputs, and the longer-term outcomes of the PGIS processes. Impacts of incorporating PGIS were examined in terms of the types and degrees of participation in the process; access to, and the uses made of, the geographic information; whether the information outputs met stakeholders' requirements; and the overall changes in equity and empowerment in the community. It was found that PGIS/participatory mapping processes contributed – positively, though not comprehensively – to good governance, by improving dialogue, redistributing resource access and control rights – though not always equitably – legitimizing and using local knowledge, exposing local stakeholders to geospatial analysis, and creating some actor empowerment through training. PGIS promoted empowerment by supporting community members' participation in decision-making and actions, and by enabling land use planning decisions beyond community forestry itself.     

Core-Periphery Models,Regional Planning Theory,and Appalachian Development

This paper employs a core-periphery perspective to review regional planning theory and examine the spatial dynamics in Appalachian development which span 25 years of Appalachian Regional Commission programs. Improved conditions, defined by increasing incomes in counties, are examined. The region is conceptualized as comprising two exterior peripheries and an interior periphery. This perspective is valuable in illustrating the region's development and for further planning efforts in Appalachia.     

国土空间规划中城镇空间和城镇开发边界的划定

在2016年国务院印发的《省级空间规划试点方案》所提出的“开展基础评价”和“绘制规划底图”两项主要任务中,城镇适宜性的评价与城镇空间、城镇开发边界的划定属于核心内容,同时也是一项具有较强探索性的工作。以国家对国土空间规划的基本设想为依据,对城镇空间和城镇开发边界的概念和内涵、空间关系、相关规则进行深入探讨,确定了城镇适宜性评价与城镇空间、城镇开发边界划定的主要思路和技术路线。结合福建省空间规划的案例,分析了城镇适宜性评价与城镇空间、城镇开发边界划定的过程、方法和结果。不同于以往各部门开展的空间性规划,城镇空间和城镇开发边界的划定建立在资源环境承载能力和国土空间开发适宜性的基础评价之上,这使得城镇开发建设活动的空间布局在资源环境本底方面得到合理保障,城镇空间和城镇开发边界的划定也有了较为科学、客观的依据。此外,把基础底图的研制与城镇发展潜能、城镇开发指向的评估,以及开发建设的规模管控、空间管控、开发强度管控系统地整合起来,使得规划底图的随意性得到了较好的控制。实践表明,本文的思路和技术方法是合理可行的,这一尝试可为空间规划理论和方法体系的完善提供参考。     

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。     

土地利用规划环境影响评价

土地利用规划的环境影响评价对提高政府决策的科学化具有重要意义。国外相关方面的研究已有30年之久,但我国刚刚起步。对于评价内涵及内容的探讨是开展这一领域研究的基础。本文从现阶段土地利用规划的需求出发,在综合分析项目环境影响评价的经验及相关的研究成果基础上提出土地利用规划环境影响评价的主要内容和研究的建议。     

新农村建设村级土地利用规划研究进展

新农村建设促进了村级土地利用规划的开展。该文分析了村级土地利用规划的内涵,论述了国内村级土地利用规划的研究现状,指出目前村级土地利用规划编制存在缺乏理论研究、规划内容不统一、规划基础资料不足及缺少规划实施后评价等问题。小尺度研究将成为土地利用规划研究的总体趋势,未来应加大试点村的规划编制,深化村级土地利用规划的空间布局优化,推进村级土地利用规划理论体系和实践方法的完善和成熟,促成国家制定统一的规划规程。     

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。     

The Nested Global City-Region: Intermunicipal Income Stratification in the Tokyo Metropolitan Region, 1980-2007

This study investigates whether or not income stratification by place has widened within the Tokyo Metropolitan Region (TMR) over the past 30 years. Its analysis shows that although income stratification among the TMR's 228 municipalities has expanded noticeably since 1980, it has remained far less severe than that in America's three largest metropolitan regions, New York, Los Angeles, and Chicago. Declining regional industrial employment, expanding national income inequality, falling land prices in the region's core, and the entrepreneurial waterfront redevelopment policies of the Tokyo Metropolitan Government (TMG) were some of the catalysts that propelled this rise in stratification in the TMR. Conversely, the region's unique racial-ethnic context and the municipal merger policies of Japanese Government were two of the factors keeping its level of income inequality far below that of America's largest urban regions. These findings support the position of Nested City theorists, who claim that embedded forces remain the most decisive determinants of growth trajectories in the TMR.     

城市规划和土地利用规划的矛盾与协调─—以三亚市为例

本文通过对现今城市规划与土地利用规划矛盾的分析，提出了协调两者关系的思路，认为两者间的矛盾和问题是客观存在的，两者的协调不能强求数量指标上的一致，而应在地区发展战略的界定下，达到两者间城镇空间布局形态和环境容量规模的相互一致，并据此对三亚市城市规划与土地利用规划的协调进行了分析。     

土地规划与农村整治──比利时瓦隆区国土整治经验借鉴*

通过研究比利时瓦隆区国土规划与农村整治的任务与实践,深入探讨了土地规划在国土整治中的重要作用及其有关经验.结合我国的实际情况,就国土整治工作的重点,土地管理与农村整治的紧迫性,以及土地规划与国土规划的关系,进行了中外对比分析,从洋为中用的角度,针对性地提出了一些意见.