论城市总体规划的“刚性”管控作用和框架设计 ——成都新一轮城市总体规划编制的思考
Rigid Control on Master Plan and Frame Design: Thoughts on the New Round of Chengdu Urban Master Plan
徐本营
成都市规划设计研究院 规划设计研究一所 副所长，工程师，硕士
摘要: 在国家新的发展理念以及城市新的发展阶段，城市总体规划编制面临重大改革。加强城市总体规划的刚性管控作用，一定程度上影响到城市治理体系的完善和治理能力的提升，是当前总体规划编制改革的重要方向。围绕目前总体规划在刚性管控方面存在的不足，试图对总体规划刚性管控进行框架设计，指出总规刚性管控的根本要义是通过建立质量发展指标确保目标实现，即“值质归统”；核心内容是以强化总体格局为基础的“底线约束”。此外，可通过增加总规单元层次，以“单元管控”的方式建立刚性与弹性的交接面，实现在刚性前提下的适度弹性。结合新一轮成都总规的改革思路和探索进行了详细介绍。
Abstract: Under the new development concept of the nation and the new stage of urban development, urban master plan faces major changes. First of all, strengthening the rigid control function of urban master plan, which affecting the improvement of the urban governance system and ability of the governance to a certain extent, is the important direction of reform on the overall planning. In this paper, focusing on the existing deficiencies in urban master plan in the aspect of rigid control, the author tries to frame the rigid control, and argues that rigid control is an essential attribute of urban master plan. The paper points out that the core factor of rigid control comes from the general rules of ‘high uniformity of value and quality index system’ and ‘the bottom line constraint’. In addition, through ‘unit control’, it is possible to achieve moderate elasticity under the premise of rigid control. Details are discussed combined with the new reform and explorations of the new round of urban master plan in Chengdu.
关键词：刚性管控、值质归统、底线约束、总规单元
Keyword: Rigid control， High uniformity of value and quality index system，Bottom line constraint，Unit control of urban master plan
中图分类号：TU981
文献标识码: A
[1]李晓江，张箐，董珂，等. 当前我国总规面临的问题与改革创新方向初探[J]. 上海城市规划，2013（3）：1-5.
LI Xiaojiang, ZHANG Jing, DONG Ke, et al. Research on problems and innovation approach of master plan in China[J]. Shanghai Urban Planning Review, 2013 (3): 1-5.
[2]孙安军. 改革完善总规的主要思路[C]//中国城市规划学会总规学术委员会年会. 北京，2016.
SUN Anjun. The main train of thought for reform and improvement of master plan[C]// Annual Conference of Master Plan Academic Committee of Urban Planning Society of China. Beijing, 2016.
[3]姚凯. “资源紧约束”条件下两规的有序衔接——基于上海“两规合一”工作的探索和实践[J]. 城市规划学刊，2010（3）：26-31.
YAO Kai. Research on the coordination of urban planning and land use planning under the conditions of resource constraints: the case of Shanghai[J]. Urban Planning Forum, 2010 (3): 26-31.
[4]邓兴栋，闫永涛，曾堃. 广州城市总体规划的演变与思考[J]. 城市规划学刊，2017（3）：47-55.
DENG Xingdong, YAN Yongtao, ZENG Kun. Evolution and thoughts on master planning in Guangzhou[J]. Urban Planning Forum, 2017 (3): 47-55.
[5]张尚武，金忠民，王新哲，等. 战略引领与刚性管控：新时期城市总体规划成果体系创新——上海2040总体规划成果体系构建的基本思路[J]. 城市规划学刊，2017（3）：19-27.
ZHANG Shangwu, JIN Zhongmin, WANG Xinzhe, et al. Strategic guidance & rigid control: the functions and innovative output system of urban comprehensive plan in the new period: key thoughts on Shanghai’s 2040 Comprehensive Plan output system[J]. Urban Planning Forum, 2017 (3): 19-27.
[6]陈琳. 转型时期城市总体规划的定位与作用[J]. 上海城市规划，2015（6）：14-16.
CHEN Lin. The position and function of master plan in the transformation period[J]. Shanghai Urban Planning Review, 2015 (6): 14-16.
[7]庄少勤. 迈向卓越的全球城市——上海新一轮城市总体规划的创新探索[J]. 上海城市规划，2016（4）：1-8.
ZHUANG Shaoqin. Striving for the excellent global city: innovations in the new round of Shanghai Master Plan[J]. Shanghai Urban Planning Review, 2016 (4): 1-8.
[8]庄少勤，徐毅松，熊健，等. 超大城市总体规划的转型与变革——上海市新一轮城市总体规划的实践探索[J]. 城市规划学刊，2017（2）：10-19.
ZHUANG Shaoqin, XU Yisong, XIONG Jian, et al. Transformation of master planning in super-large cities: practice and exploration of the new round of city planning in Shanghai[J]. Urban Planning Forum, 2017 (2): 10-19.
[9]赵民，郝晋伟. 城市总体规划实践中的悖论及对策探讨[J]. 城市规划学刊，2012（3）：1-9.
ZHAO Min, HAO Jinwei. The paradoxes and solutions of urban comprehensive planning practice in China[J]. Urban Planning Forum, 2012 (3): 1-9.
[10]陈茜，杨潇. 成都市基本公共服务圈规划探索[J]. 城市规划，2013（8）：91-94.
CHEN Qian, YANG Xiao. Exploration on the planning of fundamental Public Service Circle in Chengdu[J]. City Planning Review, 2013 (8): 91-94.
