【作者】 胡娟；

【导师】 龙元；

【作者基本信息】 华中科技大学 ， 城市规划与设计， 2010， 博士

【摘要】 旧城区更新一直是城市发展不可回避的一部分。然而改革开放以来,我国旧城更新却经历了不寻常的三十年,从最初鼓舞人心的利民工程到如今饱受诟病的民愤工程,从当初小心翼翼的小规模更新到现今大刀阔斧的推倒重建,从最初各具特色的历史城区变成了当今满目苍痍的城市怪胎。面对这一令人痛心的现实,主导开发的城市政府、城市规划难辞其咎。尽管当前我国在学术研究上已经明确现行大规模旧城更新方式的不可取,但在实际操作中城市依旧无法改变这种路径依赖。相比之下,西方国家旧城更新已发展到社区自主更新的较为成熟阶段,而我国却仍停留在以市场为导向的粗暴更新阶段。为何在现有西方可借鉴的更新方式下,我国旧城更新仍无法走出这种困境,这不得不让我们对我国旧城更新领域的决策过程产生质疑。占有决策主导力量的政府究竟以何种角色定位?学术界一直倡导的社区自主更新在我国为何难以实现?为何在不同政策取向下,旧城更新活动似乎成为政府手中任意打出的纸牌,决策失误现象屡见不鲜?城市规划是基于对公共资源再分配的一种政策制定,是以政府行政力保证实施的,其决策过程实际上也是一种公共权力的行使过程。旧城更新活动的特殊性使政府公权力行使的同时必然会涉及到很多个人私权利。所以在旧城更新的决策过程中,公权力私权利的相互交织运行组成了决策过程中的两股基本力量。本文试图以权力为线索,从旧城更新城市规划决策中权力运行的各层面,包括对权力主体、权力结构、权力机制等层面进行分析,从城市规划决策的环境、目标、主体、机制和信息控制等要素分析中,提炼出我国城市规划决策发展的阶段性过程。本文认为在改革开放发展过程中经历了指令型决策、契约型决策和博弈型决策的三种决策发展阶段：①指令型决策是改革开放初期,在我国有计划的商品经济社会背景下,形成的以计划安排为主的一种高度集权决策模式。该模式在“解危、解困”的目标下,具有决策主体一元化、敞式信息模式以及指令型决策机制的特点。②契约型决策是改革开放推进阶段,在市场与行政双轨制并存阶段所形成的以契约为约束行为方行为的一种决策模式,具有决策主体二元化、单视信息模式和契约型决策机制的特点。③博弈型决策则是现今主导的一种决策模式。由于协议、制度等正规法则的不完善,旧城更新活动中各式各样的潜规则、灰规则、黑规则、寻租、设租等不正常现象被人们日渐习以为常。在市场经济发展下,利益主体的博弈之争演化为一种新的决策模式。这种博弈型决策是在兼顾多方利益平衡下的一种满意型结果的获得,具有利益主体多元化、全视信息模式和博弈型决策机制的特点。改革开放以来,这种从指令型决策,到契约型决策,再到博弈型决策的城市规划决策过程实际上也是城市正规性和非正规性、官方权力治理和民间权利诉求之间的抗衡过程,正是这种过程导致了我国城市发展的制度变迁。同时,这种决策过程也证明,城市规划所追求的理性在权力运用中是可变的,权力会不可避免地破坏理性运用的准则,拥有的权力越大,理性运用的就可能越少。或许可以说,权力包括了不为理性所察觉到理性,而理性则拥有不为权力所知觉的权力。更多还原

【Abstract】 The development of the old town has always been the unevadable part of the develoment of the city. Since we carried out the Reform and Opening-up policy, the inner city renewal has experienced an extraordinary three decades. from the initial Inspiring project to today’s works which arose great public anger, from the original Carefully small-scale reform to the current drastic reconstruction, from the original historical cities with different characteristics into freak cities which have bruise everywhere. Faced with this sad reality, the city governments who lead the urban development, urban planning have to be responsible for that. Although the academic res earch has clearly proved the current mode of large-scale Urban Renewal is unacceptable, the cities can’t get rid of the dependence of it in the pracrise.By contrast, the inner city renewal of the western country has moved into a more mature stage of community self-update, while China still remain in the crude update stage which is market-oriented. Why we can’t go out of the predicament even if we can draw lessons from the western countries? That makes us have to question about the decision-making process in the field of inner city renewal. What the position of the govements who lead the policymaking? Why the mode of community self-update advocated by the academic world can’t come into realiy? Under the different policy preferances, the governments seam to be very arbitrary. Why the mistakes of the picymaking can be foud from time to time?Urban planning is a kind of policy-making based on the redistribution of public resources, and the implementation of it Is based on the Government’s administrative power. The process of its decision-making actually is the running of the public power. the special nature of the Urban Renewal activities make it inevitably involves the private rights of many individuals while driving the government public power. Therefore, in the decision-making process of updating the the Old City, private rights and public power are mutually exclusive, cross-cutting, and form the two fundamental forces in the decision-making process. This paper attempts to extract the development process of decision-making of China’s urban planning under the clue of power, from all levels of the decision-making of the Urban Renewal urban planning, including the analysis of main power, the power structure, power mechanism, and from the environment of the urban planning decision-making, the main body, mechanisms, and analysis the control factor of information. In the reform and opening up the development process through the instruction-based decision-making, protocol-based decision-making and game-based decision-making three kinds of decision-making stages of development. In the process of reform and opening up, it went throught the stage of directive decision,the stage of negotiatory decision,and the stage of game-based decision.①the directive decision:is formed in the early period of Reform and opening up,under the social background of planned commodity economic and, and it’s a highly centralized decision-making model based on plan arrangements. With the aim of " overcome difficulties", the model has the characteristics of the unified decision-making body, spacious style information model and instruction-based decision-making mechanisms.②contract decision:is formed at the stage of the reform and opening promotion, and it is formed in the phase of co-existence of two-track system of the market and the administration. It is a kind of decision-making model that the behavior of the parties bound by agreement, with the characteristics of Dual-based decision-making body, single information-based mode, decision-making mechanisms of protocols.③game-based decision:Since the imperfections of the formal rules of agreement and institution, people are increasingly used to the abnormal phenomena that there are a wide variety of hidden rules, gray rules, black rule, rent-seeking and rent-setting. Under the market economy, the battle of the interest evolved into a new decision-making patterns. This game-based decision-making is the satisfactory result of balance of interests, with the characteristics of the diversification of interest, all depending on the information models and game-based decision-making.Since the reform and opening-up, This decision-making process from the directive decision, to the negotiatory decisio, to game-based decision is the counterbalance process of Urban formal and non-formal nature of governance and the civil rights of official power demands, it is this process that has led to institutional changes of China’s urban development. So depend on the rules of China’s urban development pattern, this paper put forward the recommendations that China’s Urban Renewal should be made towards equity-oriented small-scale incremental update mode, the civilian-based decision-making body reconstruction, democratization, decision-making mechanism and monitoring information systems to build urban planning decision-making path.更多还原