【作者】 叶浩军；

【导师】 田银生；

【作者基本信息】 华南理工大学 ， 城市规划与设计， 2014， 博士

【摘要】 新中国成立以来，城市总体规划一直是城市规划领域中非常重要的政策文件和技术文件，而且在相当长的一段时期内，甚至是唯一的城市规划实施管理依据。然而，改革开放以来，是中国的经济社会急剧变化发展最快的时期，也是城市规划实践活跃的时期。这个时期因为改革开放而引起的价值观转变，使得从国家经济制度到以此为基础的社会管理制度、包括城市规划制度，都发生了急剧和巨大的变化。这一因价值观转变而导致的城市规划实践变化，在中国城市规划历史上具有承前启后的意义。1978年十一届三中全会是中国发展历史进程中的一个里程碑，邓小平提出改革开放的政策，是中国人在意识形态领域里的一场革命，价值体系被重新思考和构建。在城市规划的编制与实践领域也同样存在这样一个命题。工业革命以前，城市规模和形态之间的关系是相对平衡的。工业革命开始以后，价值观体系和构成及其转变过程更加复杂，城市的平衡被彻底打破，产生了一系列的城市问题，城市的发展过程中出现了许多将城市视为效率的机器而偏离了建设城市基本价值观的现象，迫使人们对由自己的经济活动而制造出来的城市进行全面的思考。其中也包括规划师不断思考和探索更加公平和有效的城市规划方法。然而，尽管规划师和规划制度都因为专业教育而建立起了一种理想的价值观，并在此指导下建立起多种理想的规划蓝图和目标，不过种种研究却已经表明，城市规划制度，只是社会制度的一部分，城市规划实践，也只是城市建设实践中的一部分，现实中规划师也只是所有社会成员中的一个群体而已，因此，规划师职业应该具有的价值观，在现实中往往因为社会角色的多重性并且受其他多种价值观及其变化影响而有所改变。在改革开放的三十多年里，由于价值观转变，我们国家颁布了城市规划法，经济制度由计划经济体制迈向了社会主义市场经济体制。同样，在这个价值观转变过程中，广州成为了第一批国家历史文化名城之一，有了经国务院批复的城市总体规划，有了城市规划管理的政府规章以及后来的城市规划地方法规，广州率先编制了全国第一个战略规划，地铁的开通使广州人的出行方式有了革命性的改变。在改革开放所引起的价值观转变中，广州不仅是最早实践的大城市之一，在经济社会发展过程中作了许多具有超前探索性意义的贡献，相应地，在城市规划领域上也开展了许多与之相适应的实践，既有主动适应并促进城市空间有序拓展的成功，也有被动受制于快速发展经济思潮下的失败，因而为中国城市规划的理论和实践研究提供了一个具有代表性的案例。全文试图用理论与实践相结合的方法，在全面认识城市规划在引导城市发展过程中所处的地位、作用和对城市总体规划实施检讨的基础上，以价值观为核心，以城市规划实践和城市建设的历史为线索，从对制度性的原因入手，通过规划立法、规划编制、规划管理和实施等四个方面，对这段时期广州不同阶段城市规划实践和城市形态的演进过程进行讨论和分析，划分出各阶段的特点及主要的动力要素和内在原因，揭示经济社会高速发展期城市发展的现实与城市总体规划的理想之间存在差异的内在原因。探索和揭示社会主义市场经济体制下城市总体规划的法律地位、实施机制和作用、内容以及与其他法定规划之间的关系。从而展示出城市规划作为社会制度的一部分，和政府、市场及社会之间所产生关系的必然性。全文分为五章。第一章为绪论部分，主要内容为对国内外城市规划特别是城市总体规划的理论进行综述，并结合价值的视角提出选题的意义、研究方法、技术路线。第二章首先回顾了1949-1978年历史阶段广州城市规划的编制和实践情况，在此基础上，研究了1978-1988年之间城市规划制度的恢复和启动时期城市规划的实践，重点讨论了一元价值观体系下城市总体规划的编制和基于改革开放的实验性实践案例，讨论了广州城市规划从立法、规划编制和机构改革、规划实施等各方面的实践，以及城市规划制度试图对城市建设影响的关系，归纳出规划制度变革启动期的特征。第三章研究了1989-1997年在国家从法律层面对多元价值存在的承认开始、市场经济体制建设过程的早期，由于市场力对效率的追求没有得到有效规范，城市规划制度建设相对于高速经济发展和快速城市化的滞后和偏离，尽管地方城市在规划实践中积极探索规划内容对市场经济的适应，但在客观上还是形成了城市规划与经济社会发展的冲突，带来了城市规划实践的种种问题。第四章研究了1998-2010年广州市政府对城市发展的理念进行了新的理性思考下，重新强调了政府对市场的主导和影响的决定性地位，城市规划制度上也进行了梳理并强化了规划编制的工作。重点讨论了城市行政区划的调整和城市空间的拓展，对城市规划制度变革的新探索及战略规划编制，城市政府依据战略规划和基础产业政策有序推进城市经济社会发展的过程。讨论了国家一系列新的城市规划制度设计下，广州逐步引入城市规划与社会对话的机制，开展了针对面向社会和公众参与的科学规划、依法规划和阳光规划探索，并将公众参与纳入法制建设的范畴。第五章进行了理论性的总结，指出目前中国仍然是一元价值观为主导的社会管理模式和多元价值观社会现实共存、政策和法律管治共存的格局，改革开放以来城市规划实践经历了一个公平——效率——公平的螺旋式发展过程。提出了在此格局下城市规划制度中依然没有解决的对市场经济体制适应的存在问题和需继续研究的方向。论文的创新点：第一个创新点是方法上以价值观为研究基础，分析了广州改革开放30多年来城市规划实践和国家价值观转变的关系。研究城市规划多会关注其自身应有的价值观，同时也会关注其在城市发展动力的相互影响及作用过程中某个方面的实际情形及结果，但是基于价值观和价值观的转变系统研究一个具体城市的城市规划实践，是一种方法上的尝试和创新。应用这种方法可以更清楚和客观地判断城市规划实践中成功与失败的根本原因。本文内容上有两个创新点。第一个是目前研究城市规划实践的成果已经很多，涉及城市规划系统的各个方面。但既有成果多从城市规划系统中的某个方面研究和讨论居多，将城市规划系统各部分有机地联系起来综合研究和讨论并判断城市规划的有效性尚没有。本文依据城市规划实践涉及的要素建立起相关的制度关系并以此作为城市规划实践评价体系，并提出“价值性工具”和“工具价值性”概念，是一种内容上的新尝试。内容上第二个创新点是以一个城市为案例，纵向剖析研究其城市规划实践的发展及演变过程，并依据其价值观表达的特点进行了基本的断代，归纳出不同时期城市规划实践的主要特征，是另一个内容上新的尝试。更多还原

【Abstract】 Since the founding of the People’s Republic of China in1949, urban master plan has beenthe major policy document and technical document in the urban planning field. And for aconsiderably long period of time, urban master plan has been the solo administration groundfor the implementation of urban planning framework. The introduction of reform and openingup policies has brought about profound social and economic transformation in China, and thisperiod of time also witnessed fundamental changes in the urban planning field. Due to thechange of personal value triggered by the reform and opening up, transforming changes havetaken place in the national economic system, social management system based on nationaleconomic system, as well as the urban planning system. It is therefore significant to observethe changes of practice in urban planning, as these changes serve as a link between past andfuture in the urban planning history in China.The Third Plenary Session of the11th Central Committee of the Chinese CommunistParty in1978marked a major milestone on China’s historic development. Deng Xiaoping firstproposed reform and opening policies at the meeting, welcoming an ensuingPrior to the industrial revolution, the relationship between urban size and urbanmorphology was a relatively balanced one. However, due to the profound changes takingplace after the industrial revolution, in particular the change of personal value, the oncebalanced urban development was lost completely, resulting in a series of urban problems.People came to cities to seek greater economic benefits, assuming that cities would functionefficiently to help urban dweller realize their financial goals in a fastest possible way. Whensuch money-driven ideology and practices went to the extreme, the basic urban values weregradually altered and people were forced to re-think the role of cities and their core values.Urban planners started to make urban planning in a more efficient and fair manner.Despite the hard efforts being made by urban planners to make urban planning, such asambitious urban development blueprints and objectives, based on an ideal value system withfocus on environmental friendliness, equity and efficiency, numerous research findings haveproved that urban planning mechanism was only an integral part of social system. Urbanplanning practices account for a small proportion of the entire urbanization practices, and urban planners are mere members of society. In other words, the value systems of urbanplanners are subject to change because of the multiplicity of their social roles and theinfluence by other value systems.In the past30years after the introduction of reform and opening up policies and due tothe change of personal value, China introduced the urban planning law, and the plannedeconomic system was replaced by the socialist market economic system.Amid such transformation of value system, Guangzhou became one of the first-batchstate-level famous Chinese historical and cultural cities. Guangzhou urban master plan, thevery first in China, was approved by the State Council. Guangzhou set up governmentregulation and local laws on urban planning, as well as China’s first overall urbandevelopment strategy planning. The metro networks also brought about revolutionary changesto Guangzhou residents’ daily transportation mode.As one of China’s few cities to embrace the transformation of value systems, Guangzhouhas made numerous forward-looking explorations in its social and economic development. Inparticular Guangzhou has made corresponding adjustments in the urban planning field. Therewere many successful cases on urban spatial expansion, as well as costly failures arising fromhigh expectation to generate rapid economic growth. The study of urban planning practices ofGuangzhou, therefore, is important and insightful to gain a better understanding of urbanplanning in China.By adopting the method of combining the theory with practice, this paper fullyinvestigates the roles and functions of urban planning on the urbanization with focus on valuesystems. By analyzing the urban planning practices at different period of time in Guangzhou,the urbanization history, as well as the dynamic factors and immanent cause for such practices,this paper attempts to study the urban planning regulation, plan making, urban planningadministration and actual implementation from an institutional reasoning viewpoint. Thepurpose of the paper is to reveal the internal relations between the reality of rapid social andeconomic development and the urban master planning ideal. This paper also studies the legalstatus of urban master planning, implementation mechanism and interactive relationship withother statutory planning systems under the socialist market economic system, so as todemonstrate the role of urban planning as a part of the social system and the inevitability of strong connection among government, market and society.This paper has five chapters.Chapter One is the introduction to the theoretical study of urban planning in China andthe rest of the world, highlighting the significance of this paper, research methodology andtechnology roadmap. Chapter Two first reveals the urban planning history in Guangzhoubetween1949and1978, with focus on the urban master plan preparation and experimentalmeasures taken to accelerate reform and opening up under the unitary value system. Duringthis period of time, many practical activities, such as urban planning legislation, urbanplanning preparation, institutional reform and urban planning implementation, wereintroduced. This chapter tries to understand the relationship between urban planningmechanism and urbanization progress, so as to sum up the main features prior to the urbanplanning reform. Chapter Three mainly study the urban planning practices during1989and1997. During this period of time—an early stage of market economic system—China startedto recognize plural value system from the legal dimension. There was no effective regulationon market forces for the pursuing of greater economic benefit, and naturally the urbanplanning institutional improvement was lagging behind the rapid economic development andurbanization. Despite Guangzhou’s hard efforts to improve its urban planning system to meetthe needs of market economic system, there were constant and increasing conflicts betweenurban planning and the social and economic development in Guangzhou. Chapter Four coversthe urban planning in Guangzhou between1998and2010. During this period of time,Guangzhou municipal government had a clear thinking on urban planning, re-emphasizing thegovernment’s leading role on market force regulation, and many efforts were made toimprove the urban planning system and urban planning preparation. Guangzhou wasconfronted with many challenging tasks, such as adjustment of administrative districts and theneeds for urban spatial expansion. In line with the strategic planning and its planned basicindustrial development policies, Guangzhou government steadily advanced its economic andsocial development. With supports from the central government, in particular the introductionof new urban planning systems, Guangzhou took an innovative approach to engage thegeneral public on its urban planning, through dialogue and public consultation on the urbanplanning preparation. Chapter Five is a theoretical conclusion. The author suggests that unitary value system still dominates the current social management model in China, but pluralvalues are well accepted in society. The co-existence of different value systems is likely tolinger for a long time. And there is a kind of spiral development of urban planning betweenequity and economic efficiency. This chapter also pinpoints the existing urban planningproblems that fail to address the needs of market economy, as well as key issues worth furtherresearch and investigation.更多还原