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<section style="box-sizing: border-box;font-size: 16px;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin: 10px 0px;padding-top: 1.3em;box-sizing: border-box;"><section style="border-top: 2px solid rgb(227, 163, 43);border-bottom: 2px solid rgb(227, 163, 43);box-sizing: border-box;"><section style="box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: -16px;margin-left: 30%;margin-right: 30%;box-sizing: border-box;"><section style="display: inline-block;box-sizing: border-box;"><section style="transform: rotate(45deg);-webkit-transform: rotate(45deg);-moz-transform: rotate(45deg);-o-transform: rotate(45deg);box-sizing: border-box;"><section style="width: 30px;height: 30px;border-left: 2px solid rgb(227, 163, 43);border-top: 2px solid rgb(227, 163, 43);background-color: rgb(255, 255, 255) !important;box-sizing: border-box;"><section style="width: 22px;height: 22px;margin: 2px;border-width: 2px;border-style: solid;border-color: rgb(227, 163, 43);box-sizing: border-box;"><section style="width: 16px;height: 16px;margin: 1px auto auto;border-width: 1px;border-style: solid;border-color: rgb(227, 163, 43);box-sizing: border-box;"><section style="width: 0px;margin: 1px auto auto;border-left: 12px solid rgb(227, 163, 43);border-bottom: 12px solid transparent !important;box-sizing: border-box;"></section></section></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: center;font-size: 14px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">点击上方“”可订阅哦！</p></section></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="display: inline-block;width: 100%;padding: 10px;border-width: 1px;border-style: dotted;border-color: white;box-shadow: rgb(225, 225, 225) 7.77817px 7.77817px 3px;background-color: rgb(227, 163, 43);box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="color: rgb(255, 255, 255);letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">作者<span style="text-indent: 0px;box-sizing: border-box;">同济大学建筑与城市规划学院在站博士后</span><span style="text-indent: 0px;box-sizing: border-box;">谭文垦，西南交通大学建筑与设计学院讲师</span><span style="text-indent: 0px;box-sizing: border-box;">袁也，西南交通大学建筑与设计学院讲师</span><span style="text-indent: 0px;box-sizing: border-box;">冯月</span><span style="text-indent: 0px;box-sizing: border-box;">在《规划师》2019年第3期撰文，</span><span style="text-indent: 2em;box-sizing: border-box;">对城市规划的实施进行评价，是反思规划实践、检讨规划得失的重要手段，也是提升规划师专业素养和自我认知</span><span style="text-indent: 2em;box-sizing: border-box;">的重要途径。文章首先总结了基于“一致性”理念的效果评价和基于“绩效”理念的过程评价这两大城市规划实施评价基本</span><span style="text-indent: 2em;box-sizing: border-box;">类型，其次综述了西方城市规划实施评价领域内较有代表性的理论框架与分析途径，最后借助对两类评价理念的总结，进一</span><span style="text-indent: 2em;box-sizing: border-box;">步检视了我国城乡规划实施评价工作的现状与困境，并对未来的发展进行了展望。</span></p></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="border-top: 5px solid rgb(42, 118, 162);border-bottom: 5px solid rgb(254, 183, 182);padding: 5px 0px;width: 100%;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="font-size: 12px;letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[关键词]实施评价；基本类型；分析途径；“一致性”；“绩效”</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[文章编号]1006-0022(2019)03-0075-07　</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[中图分类号]TU981　</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[文献标识码] A</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[引文格式] 谭文垦，袁也，冯月 ．城市规划实施评价的基本类型及分析途径：西方代表性文献的评述及启示[J]．规划师，2019(3)：75-81．</p></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.3692308" data-w="65" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/4qmiasUru1NdaxsrsU25De6KuvtiaR68XdVQ00o8llOiciaoK31gN52AYPqbbtUT8RBBvRuftc40V8zAnRbuKgDaGA/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;"><section style="width: 100%;text-align: left;background-color: rgb(61, 60, 69);box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;float: left;margin-top: -0.68em;transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;border-right: 0.4em solid rgb(147, 54, 29);border-bottom: 0.4em solid rgb(147, 54, 29);max-width: 5% !important;border-top: 0.4em solid transparent !important;border-left: 0.4em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;border-radius: 0px 0px 5px 5px;background-color: rgb(255, 30, 41);padding: 2px 5px;font-size: 19px;line-height: 1.2em;color: rgb(255, 255, 255);text-align: center;max-width: 90% !important;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">一</p></section><section style="display: inline-block;vertical-align: top;border-bottom: 0.4em solid rgb(147, 54, 29);border-left: 0.4em solid rgb(147, 54, 29);max-width: 5% !important;border-right: 0.4em solid transparent !important;border-top: 0.4em solid transparent !important;box-sizing: border-box;"></section></section><section style="display: inline-block;vertical-align: top;padding: 5px;line-height: 1.2em;color: rgb(255, 255, 255);text-align: center;font-size: 18px;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">两大基本类型：“一致性”与“绩效”</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(227, 163, 43);padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">规划实施评价主要是为了评判规划实践的成<span style="text-indent: 2em;box-sizing: border-box;">效，以及规划实践如何体现成效。但对于规划成效</span><span style="text-indent: 2em;box-sizing: border-box;">而言，在不同的标准下会有不同的结论。政策研究</span><span style="text-indent: 2em;box-sizing: border-box;">学者 B·富奇等人提出，评价可以分</span><span style="text-indent: 2em;box-sizing: border-box;">为“Conformance”(“ 一 致 性”) 和</span><span style="text-indent: 2em;box-sizing: border-box;">“Performance”(“绩效”)这两大基本</span><span style="text-indent: 2em;box-sizing: border-box;">理念，这样的分类影响了之后的规划实</span><span style="text-indent: 2em;box-sizing: border-box;">施评价研究工作</span><span style="text-indent: 2em;box-sizing: border-box;">。“一致性”理念认为，</span><span style="text-indent: 2em;box-sizing: border-box;">只要规划结果与规划方案相一致(或一致</span><span style="text-indent: 2em;box-sizing: border-box;">程度较高)，那么规划就是有成效的；“绩</span><span style="text-indent: 2em;box-sizing: border-box;">效”理念则认为，规划结果与方案相一</span><span style="text-indent: 2em;box-sizing: border-box;">致并不能完全说明问题，关键是规划本</span><span style="text-indent: 2em;box-sizing: border-box;">身要在城市发展的决策过程中发挥作用</span><span style="text-indent: 2em;box-sizing: border-box;">和影响。因此，体现出这种绩效的规划，</span><span style="text-indent: 2em;box-sizing: border-box;">才是有成效的规划。可以说，基于“一</span><span style="text-indent: 2em;box-sizing: border-box;">致性”理念的规划实施评价是以探讨“效</span><span style="text-indent: 2em;box-sizing: border-box;">果”为主的评价，强调规划实施前后的</span><span style="text-indent: 2em;box-sizing: border-box;">“一致性”；基于“绩效”理念的规划</span><span style="text-indent: 2em;box-sizing: border-box;">实施评价是以探讨“过程”为主的评价，</span><span style="text-indent: 2em;box-sizing: border-box;">强调规划在决策过程中是否发挥了推动</span><span style="text-indent: 2em;box-sizing: border-box;">性的“绩效”。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">综合而言，基于“一致性”的规划<span style="text-indent: 2em;box-sizing: border-box;">实施评价更注重规划实施后产生的效果</span><span style="text-indent: 2em;box-sizing: border-box;">是否与规划一致，这种评价取向比较注</span><span style="text-indent: 2em;box-sizing: border-box;">重结果与规划的符合度；基于“绩效”</span><span style="text-indent: 2em;box-sizing: border-box;">的规划实施评价更加注重规划在实施过</span><span style="text-indent: 2em;box-sizing: border-box;">程中所体现出的实际效力和作用，如规</span><span style="text-indent: 2em;box-sizing: border-box;">划方案是否影响了决策系统的战略选择，</span><span style="text-indent: 2em;box-sizing: border-box;">是否为空间发展的战略走向提供了实际</span><span style="text-indent: 2em;box-sizing: border-box;">的引导等。</span></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.109375" data-w="640" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/tWDq3Vm3Qbd1BpAawVNcb6CQfhcNpL6RTnTB6vBG4EcJ8IM4syic08Yv0yqe4I0PnZrCvJDiaQV3k6wrYD1Rkzbg/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;"><section style="width: 100%;text-align: left;background-color: rgb(61, 60, 69);box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;float: left;margin-top: -0.68em;transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;border-right: 0.4em solid rgb(147, 54, 29);border-bottom: 0.4em solid rgb(147, 54, 29);max-width: 5% !important;border-top: 0.4em solid transparent !important;border-left: 0.4em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;border-radius: 0px 0px 5px 5px;background-color: rgb(255, 30, 41);padding: 2px 5px;font-size: 19px;line-height: 1.2em;color: rgb(255, 255, 255);text-align: center;max-width: 90% !important;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">二</p></section><section style="display: inline-block;vertical-align: top;border-bottom: 0.4em solid rgb(147, 54, 29);border-left: 0.4em solid rgb(147, 54, 29);max-width: 5% !important;border-right: 0.4em solid transparent !important;border-top: 0.4em solid transparent !important;box-sizing: border-box;"></section></section><section style="display: inline-block;vertical-align: top;padding: 5px;line-height: 1.2em;color: rgb(255, 255, 255);font-size: 18px;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">基于“一致性”的效果评价及<span style="letter-spacing: 0px;box-sizing: border-box;">分析途径</span></p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="padding: 2px;display: inline-block;background-color: rgb(56, 30, 5);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(227, 163, 43);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（一）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">蓝图与结果的比对分析</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 7px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">将空间蓝图作为实施评价标准的代<span style="text-indent: 2em;box-sizing: border-box;">表人物是威尔达夫斯基</span><span style="text-indent: 2em;box-sizing: border-box;">。他认为规划</span><span style="text-indent: 2em;box-sizing: border-box;">是控制未来行动的尝试，但由于规划过</span><span style="text-indent: 2em;box-sizing: border-box;">程中面临着太多的不确定性，要真正评</span><span style="text-indent: 2em;box-sizing: border-box;">判其成败是很困难的。如果一定要找一</span><span style="text-indent: 2em;box-sizing: border-box;">个标准，就应当从规划的本质意义入手，</span><span style="text-indent: 2em;box-sizing: border-box;">以规划实施结果与蓝图的“一致性”为</span><span style="text-indent: 2em;box-sizing: border-box;">标准。如果规划没有实施，就说明规划</span><span style="text-indent: 2em;box-sizing: border-box;">没有发挥“控制未来”的作用，是失败</span><span style="text-indent: 2em;box-sizing: border-box;">的；如果规划蓝图实施了，说明规划部</span><span style="text-indent: 2em;box-sizing: border-box;">门在“控制未来”方面是有一定成效的。</span><span style="text-indent: 2em;box-sizing: border-box;">虽然这样的思路在之后受到了批评</span><span style="text-indent: 2em;box-sizing: border-box;">，</span><span style="text-indent: 2em;box-sizing: border-box;">但是这种以终极蓝图为导向的评价方法，</span><span style="text-indent: 2em;box-sizing: border-box;">却是开展规划实施评价工作的重要基础。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">20 世纪 70 年代，奥特曼和希尔<span style="text-indent: 2em;box-sizing: border-box;">通过考察建设许可的方式，对以色列海</span><span style="text-indent: 2em;box-sizing: border-box;">法北岸Krayot卫星城地区总体规划的实</span><span style="text-indent: 2em;box-sizing: border-box;">施情况进行了分析。研究选取 1964 ～</span><span style="text-indent: 2em;box-sizing: border-box;">1974年的数据，对实际发生的建设与总</span><span style="text-indent: 2em;box-sizing: border-box;">体规划的空间布局进行了比对分析，发</span><span style="text-indent: 2em;box-sizing: border-box;">现大约有66%的建设许可符合总体规划</span><span style="text-indent: 2em;box-sizing: border-box;">的引导。研究还用多元回归分析法对影</span><span style="text-indent: 2em;box-sizing: border-box;">响规划“一致性”的变量进行了解释，</span><span style="text-indent: 2em;box-sizing: border-box;">这些变量包括政治制度因素、规划属性</span><span style="text-indent: 2em;box-sizing: border-box;">因素和城镇体系因素。当前，依然有很</span><span style="text-indent: 2em;box-sizing: border-box;">多学者依靠这种传统的思路对规划进行</span><span style="text-indent: 2em;box-sizing: border-box;">检查。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">布罗迪和海菲尔德<span style="text-indent: 2em;box-sizing: border-box;">对美国佛罗里</span><span style="text-indent: 2em;box-sizing: border-box;">达的环境规划实施情况进行了分析，对</span><span style="text-indent: 2em;box-sizing: border-box;">10年来发生在湿地空间内的开发许可进</span><span style="text-indent: 2em;box-sizing: border-box;">行了检查，对总体规划的用地布局和开</span><span style="text-indent: 2em;box-sizing: border-box;">发行为进行了“一致性”的比对分析。</span><span style="text-indent: 2em;box-sizing: border-box;">研究发现，尽管大部分的建设许可符合</span><span style="text-indent: 2em;box-sizing: border-box;">规划的要求，但是还是有明显的、成片</span><span style="text-indent: 2em;box-sizing: border-box;">的开发许可 ( 占总数的 15% 以上 ) 与已</span><span style="text-indent: 2em;box-sizing: border-box;">经采纳的州际土地使用规划相背离。这</span><span style="text-indent: 2em;box-sizing: border-box;">些违背了规划意图的开发许可都发生在</span><span style="text-indent: 2em;box-sizing: border-box;">比较特殊的区位，并且是在相对特殊的</span><span style="text-indent: 2em;box-sizing: border-box;">情形下获得许可的。</span></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="padding: 2px;display: inline-block;background-color: rgb(56, 30, 5);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(227, 163, 43);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（二）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">规划政策的地区采纳与利用</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 7px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">“一致性”的另外一种分析方法是<span style="text-indent: 2em;box-sizing: border-box;">站在地区的角度，对规划政策的采纳及</span><span style="text-indent: 2em;box-sizing: border-box;">使用情况进行考察。这种评价的前提是</span><span style="text-indent: 2em;box-sizing: border-box;">要获得地方发展建设的基础信息，尤其</span><span style="text-indent: 2em;box-sizing: border-box;">是与规划政策、规划许可相关的资料，</span><span style="text-indent: 2em;box-sizing: border-box;">并对其进行相应的分析。这种思路并不</span><span style="text-indent: 2em;box-sizing: border-box;">注重传统的空间比对分析，而是关注如</span><span style="text-indent: 2em;box-sizing: border-box;">何将规划政策运用在实际的地区开发建</span><span style="text-indent: 2em;box-sizing: border-box;">设中。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">比较有代表性的是一个由美国和新<span style="text-indent: 2em;box-sizing: border-box;">西兰学者组成的研究团队</span><span style="text-indent: 2em;box-sizing: border-box;">提出的PIE</span><span style="text-indent: 2em;box-sizing: border-box;">方法(Plan Implementation Evaluation)。</span><span style="text-indent: 2em;box-sizing: border-box;">该方法包括5个步骤：①选择规划中的某</span><span style="text-indent: 2em;box-sizing: border-box;">个主题及相关部分作为评价对象。②确证</span><span style="text-indent: 2em;box-sizing: border-box;">与此规划主题相关联的政策，以及落实各</span><span style="text-indent: 2em;box-sizing: border-box;">条政策的相关技术条例。③选择与规划主</span><span style="text-indent: 2em;box-sizing: border-box;">题相关的建设许可，对每个建设许可所采</span><span style="text-indent: 2em;box-sizing: border-box;">用的技术条例及政策条款进行考察。④建</span><span style="text-indent: 2em;box-sizing: border-box;">立规划政策与建设许可之间的关联，评价</span><span style="text-indent: 2em;box-sizing: border-box;">每个建设许可所体现出的规划政策情况。</span><span style="text-indent: 2em;box-sizing: border-box;">⑤测算评价指标，一个是实施广度，即采</span><span style="text-indent: 2em;box-sizing: border-box;">纳了规划政策的建设许可在所有建设许可</span><span style="text-indent: 2em;box-sizing: border-box;">中的比例，这反映了规划政策实施的涵盖</span><span style="text-indent: 2em;box-sizing: border-box;">面；另一个是实施深度，即在每一个建设</span><span style="text-indent: 2em;box-sizing: border-box;">许可所依据的政策条例中，规划政策所占</span><span style="text-indent: 2em;box-sizing: border-box;">的比例情况，这反映了规划政策在建设活</span><span style="text-indent: 2em;box-sizing: border-box;">动中的实际影响程度。研究用PIE方法对</span><span style="text-indent: 2em;box-sizing: border-box;">新西兰的6个规划和400多个开发许可</span><span style="text-indent: 2em;box-sizing: border-box;">进行了分析，结果表明：规划政策的实施</span><span style="text-indent: 2em;box-sizing: border-box;">广度要好于实施深度，即规划政策在大量</span><span style="text-indent: 2em;box-sizing: border-box;">的建设许可中被考虑了，对实施活动产生</span><span style="text-indent: 2em;box-sizing: border-box;">了广泛的影响。但是，对于单个建设许可</span><span style="text-indent: 2em;box-sizing: border-box;">而言，规划政策(技术条款)并非是唯一</span><span style="text-indent: 2em;box-sizing: border-box;">要遵从和贯彻的内容，还有其他多方面的</span><span style="text-indent: 2em;box-sizing: border-box;">因素也影响了开发活动，因此规划没能体</span><span style="text-indent: 2em;box-sizing: border-box;">现较好的实施深度。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">还有一些学者则直接从地方在发展<span style="text-indent: 2em;box-sizing: border-box;">过程中对规划政策的采纳情况入手，考</span><span style="text-indent: 2em;box-sizing: border-box;">察规划政策在地方发展过程中的体现情</span><span style="text-indent: 2em;box-sizing: border-box;">况：阿玛迪和横张真对伦敦绿带的政策</span><span style="text-indent: 2em;box-sizing: border-box;">演进与地方演变问题进行了研究</span><span style="text-indent: 2em;box-sizing: border-box;">。研</span><span style="text-indent: 2em;box-sizing: border-box;">究首先对伦敦绿带在不同历史背景下的</span><span style="text-indent: 2em;box-sizing: border-box;">目标进行了回溯，其次在确定地方政府</span><span style="text-indent: 2em;box-sizing: border-box;">具备自由裁量权的基础上，对各地的绿</span><span style="text-indent: 2em;box-sizing: border-box;">带实施目标的内容进行了聚类分析。研</span><span style="text-indent: 2em;box-sizing: border-box;">究发现，最主要的目标是控制城镇增长、</span><span style="text-indent: 2em;box-sizing: border-box;">强化景观保护和提升景观质量，如果没</span><span style="text-indent: 2em;box-sizing: border-box;">有这三个方面的需求，地方政府便不重</span><span style="text-indent: 2em;box-sizing: border-box;">视绿带的建设。这从侧面反映了伦敦地</span><span style="text-indent: 2em;box-sizing: border-box;">方的发展规划对绿带政策的遵从意愿并</span><span style="text-indent: 2em;box-sizing: border-box;">不是很强。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">诺顿认为地方当局对州立规划的遵<span style="text-indent: 2em;box-sizing: border-box;">从与恪守，是规划发生作用并能有所产</span><span style="text-indent: 2em;box-sizing: border-box;">出的必要条件，他对北卡罗来纳州20世</span><span style="text-indent: 2em;box-sizing: border-box;">纪90年代制定的一项沿岸资源保护规划</span><span style="text-indent: 2em;box-sizing: border-box;">在地方的实施情况进行了调查</span><span style="text-indent: 2em;box-sizing: border-box;">。研究</span><span style="text-indent: 2em;box-sizing: border-box;">从地方当局负责人对规划的遵从、总体</span><span style="text-indent: 2em;box-sizing: border-box;">规划质量和规划方案使用3个方面入手，</span><span style="text-indent: 2em;box-sizing: border-box;">考察了地方发展对规划的遵从情况及其</span><span style="text-indent: 2em;box-sizing: border-box;">影响因素。结果表明，地方当局总体上</span><span style="text-indent: 2em;box-sizing: border-box;">未能实现州立规划的目标，其很大程度</span><span style="text-indent: 2em;box-sizing: border-box;">上是因为地方的发展需求对规划的贯彻</span><span style="text-indent: 2em;box-sizing: border-box;">产生了阻力。此外，布罗迪等人对佛罗</span><span style="text-indent: 2em;box-sizing: border-box;">里达的减量规划政策进行了评价，其方</span><span style="text-indent: 2em;box-sizing: border-box;">法是测度地方当局对控制蔓延政策的采</span><span style="text-indent: 2em;box-sizing: border-box;">纳情况</span><span style="text-indent: 2em;box-sizing: border-box;">。研究对佛罗里达46个行政辖</span><span style="text-indent: 2em;box-sizing: border-box;">区的总体规划进行了分析，利用评价技</span><span style="text-indent: 2em;box-sizing: border-box;">术对其中体现遏制蔓延规划的政策表述</span><span style="text-indent: 2em;box-sizing: border-box;">进行了检视。结果表明，研究区域对规</span><span style="text-indent: 2em;box-sizing: border-box;">划政策的采纳情况进行了清晰的表述。</span><span style="text-indent: 2em;box-sizing: border-box;">研究还指出地方特定的社会经济和人口</span><span style="text-indent: 2em;box-sizing: border-box;">特征影响了其对减量规划政策的采纳。</span></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="padding: 2px;display: inline-block;background-color: rgb(56, 30, 5);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(227, 163, 43);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（三）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">规划意图的实现分析</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 7px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">如果说空间建设是规划落实的物质<span style="text-indent: 2em;box-sizing: border-box;">基础，地方采纳是规划实现的政治前提，</span><span style="text-indent: 2em;box-sizing: border-box;">那么目标意图则应当是规划政策的中心</span><span style="text-indent: 2em;box-sizing: border-box;">思想。因此，根据目标意图而进行的“一</span><span style="text-indent: 2em;box-sizing: border-box;">致性”评价便尤为重要。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">卡尔金斯提出了“规划监控”理论<span style="text-indent: 2em;box-sizing: border-box;">，</span><span style="text-indent: 2em;box-sizing: border-box;">将规划内容分为理念、意图、目标、内生</span><span style="text-indent: 2em;box-sizing: border-box;">项目与政策、外延项目与政策5个层面，</span><span style="text-indent: 2em;box-sizing: border-box;">并在各个层面建立了相应的规划内容体系</span><span style="text-indent: 2em;box-sizing: border-box;">和对应的监控指标体系，以评价规划的实</span><span style="text-indent: 2em;box-sizing: border-box;">施是否符合目标。卡尔金斯的一个重要贡</span><span style="text-indent: 2em;box-sizing: border-box;">献是，他将规划的“一致性”分析分为多</span><span style="text-indent: 2em;box-sizing: border-box;">个层次，并将规划意图、规划目标、规划</span><span style="text-indent: 2em;box-sizing: border-box;">项目和政策行为整合到一个评价框架之中。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">20 世纪 90 年代，塔伦注意到规划<span style="text-indent: 2em;box-sizing: border-box;">意图的评价问题，并将其运用到具体的</span><span style="text-indent: 2em;box-sizing: border-box;">实证研究中</span><span style="text-indent: 2em;box-sizing: border-box;">。他以美国科罗拉多州普</span><span style="text-indent: 2em;box-sizing: border-box;">埃布罗的公园绿地规划为对象，研究其</span><span style="text-indent: 2em;box-sizing: border-box;">空间布点的服务范围与人口分布的关系。</span><span style="text-indent: 2em;box-sizing: border-box;">他提出，公园绿地规划的意图和目标是</span><span style="text-indent: 2em;box-sizing: border-box;">最大范围地服务居民，即让公园的服务</span><span style="text-indent: 2em;box-sizing: border-box;">半径尽可能覆盖所有的社区。因此，最</span><span style="text-indent: 2em;box-sizing: border-box;">终的公园绿地分布即使与规划布局有一</span><span style="text-indent: 2em;box-sizing: border-box;">定出入也没有关系，只要能实现规划的</span><span style="text-indent: 2em;box-sizing: border-box;">意图便可以认为是有成效的规划。需要</span><span style="text-indent: 2em;box-sizing: border-box;">注意的是，塔伦这种评价思路主要是针</span><span style="text-indent: 2em;box-sizing: border-box;">对公共设施布局规划的，而公共设施的</span><span style="text-indent: 2em;box-sizing: border-box;">目标主要就是最大范围地服务居民，因</span><span style="text-indent: 2em;box-sizing: border-box;">此公共设施布局本身是否符合规划并不</span><span style="text-indent: 2em;box-sizing: border-box;">一定就是评判规划成败的合适标准，而</span><span style="text-indent: 2em;box-sizing: border-box;">能否为居民提供便利，才是规划评价应</span><span style="text-indent: 2em;box-sizing: border-box;">当着重关注的。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">此外，英国也开展了对土地利用规<span style="text-indent: 2em;box-sizing: border-box;">划的有效性评估，而评判的标准建立在</span><span style="text-indent: 2em;box-sizing: border-box;">对“目标一致性”的分析基础之上。莫</span><span style="text-indent: 2em;box-sizing: border-box;">里森和皮尔斯提出了评价土地利用规划</span><span style="text-indent: 2em;box-sizing: border-box;">的框架：①对政策目标进行分析，包括</span><span style="text-indent: 2em;box-sizing: border-box;">目标的类型、对象、方向和预期；②对</span><span style="text-indent: 2em;box-sizing: border-box;">目标的输出内容进行考察，包括因政策</span><span style="text-indent: 2em;box-sizing: border-box;">目标而产生的各种规划，以及最终的发</span><span style="text-indent: 2em;box-sizing: border-box;">展控制决策；③对政策的产出和影响进</span><span style="text-indent: 2em;box-sizing: border-box;">行分析，前者是添加给规划的“噪音”，</span><span style="text-indent: 2em;box-sizing: border-box;">后者则是规划产生的影响，两者也分为</span><span style="text-indent: 2em;box-sizing: border-box;">中期和最终两种情形；④基于前三类信</span><span style="text-indent: 2em;box-sizing: border-box;">息，确立相应的指标体系，其中最关键</span><span style="text-indent: 2em;box-sizing: border-box;">的是土地利用规划的优选性</span><span style="text-indent: 2em;box-sizing: border-box;">。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">实际上，在政策评价领域内对于目<span style="text-indent: 2em;box-sizing: border-box;">标达成方法早已形成成熟的理论体系。</span><span style="text-indent: 2em;box-sizing: border-box;">虽然城市规划一直以来被认为是公共政</span><span style="text-indent: 2em;box-sizing: border-box;">策的一种，但是有一点使其有别于其他</span><span style="text-indent: 2em;box-sizing: border-box;">公共政策，即城市规划政策的实现既以</span><span style="text-indent: 2em;box-sizing: border-box;">空间配置为目标，也以空间配置为手段；</span><span style="text-indent: 2em;box-sizing: border-box;">既要引导未来发展，也要解决现实问题。</span><span style="text-indent: 2em;box-sizing: border-box;">然而，一般意义上的公共政策，通常是</span><span style="text-indent: 2em;box-sizing: border-box;">直接启用相应的政策措施来解决现实问</span><span style="text-indent: 2em;box-sizing: border-box;">题。因此，规划评价才会过于注意空间</span><span style="text-indent: 2em;box-sizing: border-box;">的问题，没有把足够的精力放在政策意</span><span style="text-indent: 2em;box-sizing: border-box;">图上。著名公共政策学者韦唐总结了 8</span><span style="text-indent: 2em;box-sizing: border-box;">种经典的公共政策评价方法</span><span style="text-indent: 2em;box-sizing: border-box;">，其中第</span><span style="text-indent: 2em;box-sizing: border-box;">一种就是目标达成方法。韦唐将目标达</span><span style="text-indent: 2em;box-sizing: border-box;">成方法分成了两个基本类别：①公共干</span><span style="text-indent: 2em;box-sizing: border-box;">预的结果是否与目标相符合，这需要通</span><span style="text-indent: 2em;box-sizing: border-box;">过目标测量和结果监测来鉴定；②公共</span><span style="text-indent: 2em;box-sizing: border-box;">干预的影响和目标范围内所发生的结果</span><span style="text-indent: 2em;box-sizing: border-box;">是否存在联系，即结果是否是由干预引</span><span style="text-indent: 2em;box-sizing: border-box;">起的。在具体评估方法上，韦唐设置了</span><span style="text-indent: 2em;box-sizing: border-box;">两个步骤：①识别和确认公共干预的意</span><span style="text-indent: 2em;box-sizing: border-box;">图，并推动其目标体系精确化、具体化、</span><span style="text-indent: 2em;box-sizing: border-box;">主次化，使之成为可测度的对象；②确</span><span style="text-indent: 2em;box-sizing: border-box;">定干预的对象范围，考察干预目标在现</span><span style="text-indent: 2em;box-sizing: border-box;">实中的推进情况，并进行量化。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">对于城市规划实施评价而言，规划<span style="text-indent: 2em;box-sizing: border-box;">目标不仅仅是规划空间的实现和开发许</span><span style="text-indent: 2em;box-sizing: border-box;">可的运用，更重要的是，要清楚政府制</span><span style="text-indent: 2em;box-sizing: border-box;">定空间规划的政策意图是什么，通过空</span><span style="text-indent: 2em;box-sizing: border-box;">间干预所要达到的目的是什么。</span></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.109375" data-w="640" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/tWDq3Vm3Qbd1BpAawVNcb6CQfhcNpL6RTnTB6vBG4EcJ8IM4syic08Yv0yqe4I0PnZrCvJDiaQV3k6wrYD1Rkzbg/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;"><section style="width: 100%;text-align: left;background-color: rgb(61, 60, 69);box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;float: left;margin-top: -0.68em;transform: rotate(0deg);-webkit-transform: rotate(0deg);-moz-transform: rotate(0deg);-o-transform: rotate(0deg);box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;border-right: 0.4em solid rgb(147, 54, 29);border-bottom: 0.4em solid rgb(147, 54, 29);max-width: 5% !important;border-top: 0.4em solid transparent !important;border-left: 0.4em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;border-radius: 0px 0px 5px 5px;background-color: rgb(255, 30, 41);padding: 2px 5px;font-size: 19px;line-height: 1.2em;color: rgb(255, 255, 255);text-align: center;max-width: 90% !important;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">三</p></section><section style="display: inline-block;vertical-align: top;border-bottom: 0.4em solid rgb(147, 54, 29);border-left: 0.4em solid rgb(147, 54, 29);max-width: 5% !important;border-right: 0.4em solid transparent !important;border-top: 0.4em solid transparent !important;box-sizing: border-box;"></section></section><section style="display: inline-block;vertical-align: top;padding: 5px;line-height: 1.2em;color: rgb(255, 255, 255);text-align: center;font-size: 18px;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">基于“绩效”的过程评价及分析<span style="letter-spacing: 0px;box-sizing: border-box;">途径</span></p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(227, 163, 43);padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="padding: 2px;display: inline-block;background-color: rgb(56, 30, 5);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(227, 163, 43);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（一）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">荷兰学派的实施绩效分析</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">有关“绩效”标准的探讨，20 世纪<span style="text-indent: 2em;box-sizing: border-box;">90年代以来越来越受到荷兰学派的学者</span><span style="text-indent: 2em;box-sizing: border-box;">们的关注，他们强调规划对决策系统的</span><span style="text-indent: 2em;box-sizing: border-box;">影响能力，并以此作为评判规划成败的</span><span style="text-indent: 2em;box-sizing: border-box;">标准。这种思路与上文所述的“一致性”</span><span style="text-indent: 2em;box-sizing: border-box;">标准形成了鲜明的对比。他们认为，传</span><span style="text-indent: 2em;box-sizing: border-box;">统的“一致性”方法只适合项目规划，</span><span style="text-indent: 2em;box-sizing: border-box;">不适用于更具政策性的战略规划。传统</span><span style="text-indent: 2em;box-sizing: border-box;">的项目规划都是建设性的引导，有固定</span><span style="text-indent: 2em;box-sizing: border-box;">导向的规划蓝图；而战略规划提供的是</span><span style="text-indent: 2em;box-sizing: border-box;">参考性的发展框架，是开放而弹性的、</span><span style="text-indent: 2em;box-sizing: border-box;">基于现实问题的决策引导。荷兰学派的</span><span style="text-indent: 2em;box-sizing: border-box;">学者们对项目规划和战略规划的不同特</span><span style="text-indent: 2em;box-sizing: border-box;">征进行了总结 ( 表 1)，并提出战略规划</span><span style="text-indent: 2em;box-sizing: border-box;">的评价方法应该围绕规划的决策绩效进</span><span style="text-indent: 2em;box-sizing: border-box;">行架构，其重点在于考察规划起到了什</span><span style="text-indent: 2em;box-sizing: border-box;">么样的“干预”作用，如何判断这种“干</span><span style="text-indent: 2em;box-sizing: border-box;">预”的实用性，以及规划是否体现了对</span><span style="text-indent: 2em;box-sizing: border-box;">决策体系的指引作用等内容</span><span style="text-indent: 2em;box-sizing: border-box;">。</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.359736" data-w="606" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaZIlj3HsyZxrBrKaNZapbFyyPtBuV1U0QubYV4oLtmyCTY9VTOLJasHpzH0Pbibj7q7wvibS2PzgBw/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">马斯托普和尼德汉姆指出绩效方法<span style="text-indent: 2em;box-sizing: border-box;">有 4 个优点</span><span style="text-indent: 2em;box-sizing: border-box;">：①绩效方法能体现规划</span><span style="text-indent: 2em;box-sizing: border-box;">过程中的互动沟通，有助于人们进一步</span><span style="text-indent: 2em;box-sizing: border-box;">理解战略规划政策是如何在政策人员的</span><span style="text-indent: 2em;box-sizing: border-box;">推动下传递和执行的；②绩效方法能辨</span><span style="text-indent: 2em;box-sizing: border-box;">明政策过程中所有参与人员的行动角色，</span><span style="text-indent: 2em;box-sizing: border-box;">并能以个人视角来辨析政策过程；③绩</span><span style="text-indent: 2em;box-sizing: border-box;">效方法充分包含了对规划情景的考虑，</span><span style="text-indent: 2em;box-sizing: border-box;">从自由裁量的情景到严格控制的另一极</span><span style="text-indent: 2em;box-sizing: border-box;">端情景；④绩效方法为战略政策和一些</span><span style="text-indent: 2em;box-sizing: border-box;">可操作性的政策提供了一种理论健全的</span><span style="text-indent: 2em;box-sizing: border-box;">评价方法，使人们有机会打开规划过程</span><span style="text-indent: 2em;box-sizing: border-box;">的“黑匣子”。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">基于对“绩效”的理解，法卢迪讨<span style="text-indent: 2em;box-sizing: border-box;">论了规划“有效”的 4 种情形</span><span style="text-indent: 2em;box-sizing: border-box;">：①如</span><span style="text-indent: 2em;box-sizing: border-box;">果有操作性决策明确是参考自规划方案，</span><span style="text-indent: 2em;box-sizing: border-box;">而非其他因素，说明规划有效；②某些</span><span style="text-indent: 2em;box-sizing: border-box;">决策参数的变化来自于规划，即使决策</span><span style="text-indent: 2em;box-sizing: border-box;">不符合规划，也是基于规划内容深思熟</span><span style="text-indent: 2em;box-sizing: border-box;">虑的结果，规划同样发挥了作用；③规</span><span style="text-indent: 2em;box-sizing: border-box;">划为后来的决策提供了分析基础，即使</span><span style="text-indent: 2em;box-sizing: border-box;">违背了规划，但这样的决策也处在规划</span><span style="text-indent: 2em;box-sizing: border-box;">的“保护伞”之下；④规划无法回应现</span><span style="text-indent: 2em;box-sizing: border-box;">实而必须修订的时候，直到有修订方案</span><span style="text-indent: 2em;box-sizing: border-box;">替代原规划之前，原规划仍然可以被认</span><span style="text-indent: 2em;box-sizing: border-box;">为是在运作的。</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><br  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="padding: 2px;display: inline-block;background-color: rgb(56, 30, 5);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(227, 163, 43);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（二）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">综合型的规划过程分析</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">20世纪80年代末，亚历山大和法卢<span style="text-indent: 2em;box-sizing: border-box;">迪提出了PPIP模型和PPPP分析框架</span><span style="text-indent: 2em;box-sizing: border-box;">。</span><span style="text-indent: 2em;box-sizing: border-box;">虽然他们并没有明确提出要衡量规划的</span><span style="text-indent: 2em;box-sizing: border-box;">“绩效”，但是由于统筹考虑了规划实</span><span style="text-indent: 2em;box-sizing: border-box;">施的“一致性”问题、规划决策过程的</span><span style="text-indent: 2em;box-sizing: border-box;">演进问题和规划结果的实效问题，他们</span><span style="text-indent: 2em;box-sizing: border-box;">实际上已经建立了一个衡量规划成败的</span><span style="text-indent: 2em;box-sizing: border-box;">综合框架，而这种成败正是“绩效”所</span><span style="text-indent: 2em;box-sizing: border-box;">指向的内容。PPIP模型将规划实施过程</span><span style="text-indent: 2em;box-sizing: border-box;">分解为刺激、政策、计划/项目和实施4</span><span style="text-indent: 2em;box-sizing: border-box;">个流程，明确了流程之间的互动关系，</span><span style="text-indent: 2em;box-sizing: border-box;">并基于5个标准建立了PPPP分析框架。</span><span style="text-indent: 2em;box-sizing: border-box;">这五个标准分别是：①目标是否一致，</span><span style="text-indent: 2em;box-sizing: border-box;">即规划实施的结果是否符合设想；②过</span><span style="text-indent: 2em;box-sizing: border-box;">程理性，即规划实施的过程逻辑是否合</span><span style="text-indent: 2em;box-sizing: border-box;">理，并能被理解；③事前最优，即规划</span><span style="text-indent: 2em;box-sizing: border-box;">方案是否是实施时的最佳选择；④事后</span><span style="text-indent: 2em;box-sizing: border-box;">最优，即规划方案在事后看来是否是最</span><span style="text-indent: 2em;box-sizing: border-box;">好的选择；⑤实用性，即规划方案是否</span><span style="text-indent: 2em;box-sizing: border-box;">在决策系统中发挥了参考作用，如果没</span><span style="text-indent: 2em;box-sizing: border-box;">有，原因是什么。这五个标准不仅包括</span><span style="text-indent: 2em;box-sizing: border-box;">传统的“一致性”分析，还体现了实施</span><span style="text-indent: 2em;box-sizing: border-box;">过程的效力问题。例如，事前/事后最优</span><span style="text-indent: 2em;box-sizing: border-box;">评价的是规划方案是否带来了最佳的实</span><span style="text-indent: 2em;box-sizing: border-box;">施过程，过程理性强调了实施环节的过</span><span style="text-indent: 2em;box-sizing: border-box;">程逻辑，实用性体现了荷兰学派的经典</span><span style="text-indent: 2em;box-sizing: border-box;">绩效标准。基于上述评价标准，亚历山</span><span style="text-indent: 2em;box-sizing: border-box;">大和法卢迪建构了逻辑体系严密的PPPP</span><span style="text-indent: 2em;box-sizing: border-box;">评估流程(图1)。</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="1.1735537" data-w="605" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaZIlj3HsyZxrBrKaNZapbFzrFDkDt7epVLr1ce1ic8KxvibOlh0o2YJqLJian2QJIMcMFCQ4iaUCl26w/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">英国学者卡莫纳和希赫站在管控绩<span style="text-indent: 2em;box-sizing: border-box;">效过程的角度，提出了一套测度规划质</span><span style="text-indent: 2em;box-sizing: border-box;">量的方法</span><span style="text-indent: 2em;box-sizing: border-box;">。他们提出了规划绩效测度</span><span style="text-indent: 2em;box-sizing: border-box;">的基本维度：①通过规划的组织运作，</span><span style="text-indent: 2em;box-sizing: border-box;">将规划提案引入规划部门，形成规划政</span><span style="text-indent: 2em;box-sizing: border-box;">策。②规划政策形成后，规划部门推动</span><span style="text-indent: 2em;box-sizing: border-box;">该政策的实施，使其服务于城市的可持</span><span style="text-indent: 2em;box-sizing: border-box;">续发展。③规划服务为利益相关者带来</span><span style="text-indent: 2em;box-sizing: border-box;">了收益，促进了发展(同时促使了规划政</span><span style="text-indent: 2em;box-sizing: border-box;">策的成功)，满足了利益相关者的需求。</span><span style="text-indent: 2em;box-sizing: border-box;">前两点涉及到了规划的组织质量，第三</span><span style="text-indent: 2em;box-sizing: border-box;">点涉及到规划的服务质量(图2)。</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.6973995" data-w="423" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaZIlj3HsyZxrBrKaNZapbFpO15oN8CuCR5gKqJxAZFNAZibEnC0dXzSwXiaGPaZxAkFj0LAvo0sVXA/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">从具体的测评看，规划产品是规划<span style="text-indent: 2em;box-sizing: border-box;">组织质量和规划服务质量两者的综合。</span><span style="text-indent: 2em;box-sizing: border-box;">基于此，卡莫纳和希赫提出了测度规划</span><span style="text-indent: 2em;box-sizing: border-box;">绩效的指标：①服务质量，包括服务的</span><span style="text-indent: 2em;box-sizing: border-box;">效率、效力、经济性和公平性。②组织</span><span style="text-indent: 2em;box-sizing: border-box;">质量，包括组织的领导力、技能、资源</span><span style="text-indent: 2em;box-sizing: border-box;">和组织的整合。③产品质量，包括规划</span><span style="text-indent: 2em;box-sizing: border-box;">开发的价值增值、利益相关者的满意度、</span><span style="text-indent: 2em;box-sizing: border-box;">政策的总体成效和为可持续发展所做的</span><span style="text-indent: 2em;box-sizing: border-box;">贡献。基于上述指标，卡莫纳和希赫提</span><span style="text-indent: 2em;box-sizing: border-box;">出了规划绩效的测评体系，并以同心圆</span><span style="text-indent: 2em;box-sizing: border-box;">的结构进行了分级，形成了规划绩效的</span><span style="text-indent: 2em;box-sizing: border-box;">玫瑰图</span><span style="text-indent: 2em;box-sizing: border-box;">。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">葡萄牙学者奥利维拉与皮尼奥在前人<span style="text-indent: 2em;box-sizing: border-box;">研究的基础上提出了PPR评价方法</span><span style="text-indent: 2em;box-sizing: border-box;">。</span><span style="text-indent: 2em;box-sizing: border-box;">PPR评价指标体系包括以下指标：①规划</span><span style="text-indent: 2em;box-sizing: border-box;">方案的内在一致性；②规划方案与城市</span><span style="text-indent: 2em;box-sizing: border-box;">需求、发展愿景的关联；③依据规划体</span><span style="text-indent: 2em;box-sizing: border-box;">系发展出的实施机制与法规框架；④规</span><span style="text-indent: 2em;box-sizing: border-box;">划方案与其他决策系统的外在一致性；</span><span style="text-indent: 2em;box-sizing: border-box;">⑤方案制定和实施过程中的公众参与及</span><span style="text-indent: 2em;box-sizing: border-box;">影响；⑥决策过程中对规划方案的利用</span><span style="text-indent: 2em;box-sizing: border-box;">情况；⑦人力和财政资源的承诺；⑧规</span><span style="text-indent: 2em;box-sizing: border-box;">划衍生出的各类详细规划、设计项目及</span><span style="text-indent: 2em;box-sizing: border-box;">其实效；⑨规划对城市物质空间、社会</span><span style="text-indent: 2em;box-sizing: border-box;">发展和经济发展的指引作用。前 4 项指</span><span style="text-indent: 2em;box-sizing: border-box;">标评价的是规划方案本身的适宜性问</span><span style="text-indent: 2em;box-sizing: border-box;">题，并不涉及规划过程的内容。后 5 项</span><span style="text-indent: 2em;box-sizing: border-box;">指标则强调了规划实施中的各种过程因</span><span style="text-indent: 2em;box-sizing: border-box;">素，如公众参与对实施的影响、规划与</span><span style="text-indent: 2em;box-sizing: border-box;">决策过程的互动及作用体现、推动规划</span><span style="text-indent: 2em;box-sizing: border-box;">实施的资源因素、规划实施对城市宏观</span><span style="text-indent: 2em;box-sizing: border-box;">发展过程的影响 ( 图 3)。</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.6016427" data-w="487" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaZIlj3HsyZxrBrKaNZapbFhhw0Tb9SXdgjiblQ4luNOzEShiaJdJ4epXokCxJDsY4ztyBwY9f9z9WA/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="padding: 2px;display: inline-block;background-color: rgb(56, 30, 5);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(227, 163, 43);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（三）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">公共政策的执行分析</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">除了规划领域对规划实施过程和“绩<span style="text-indent: 2em;box-sizing: border-box;">效”进行了探索，公共政策领域也已形</span><span style="text-indent: 2em;box-sizing: border-box;">成了大量的有关政策执行过程的分析方</span><span style="text-indent: 2em;box-sizing: border-box;">法，虽然有些理论并未直接谈及“绩效”，</span><span style="text-indent: 2em;box-sizing: border-box;">但是能为人们认识政策实施的过程“绩</span><span style="text-indent: 2em;box-sizing: border-box;">效”提供很好的参照。希尔和休普在《执</span><span style="text-indent: 2em;box-sizing: border-box;">行公共政策》一书中对 1973 ～ 1998 年</span><span style="text-indent: 2em;box-sizing: border-box;">有关政策执行的 21 种理论进行了全面的</span><span style="text-indent: 2em;box-sizing: border-box;">论述</span><span style="text-indent: 2em;box-sizing: border-box;">，笔者选取了对过程“绩效”比</span><span style="text-indent: 2em;box-sizing: border-box;">较有参考价值的３种理论加以分析。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;box-sizing: border-box;">美国学者范米特与范霍恩搭建了政</span><span style="text-indent: 2em;box-sizing: border-box;">策执行过程的框架</span><span style="text-indent: 2em;box-sizing: border-box;">。在这个框架之中，</span><span style="text-indent: 2em;box-sizing: border-box;">政策过程包含以下６组要素：①政策的标</span><span style="text-indent: 2em;box-sizing: border-box;">准与目的，以及政策执行的具体指向；②</span><span style="text-indent: 2em;box-sizing: border-box;">相应的政策资源，如财力、法规和激励机</span><span style="text-indent: 2em;box-sizing: border-box;">制；③执行机构的特征，如由什么部门、</span><span style="text-indent: 2em;box-sizing: border-box;">以什么样的结构来组织实施；④执行架构</span><span style="text-indent: 2em;box-sizing: border-box;">下的组织交流与活动强化，如主导部门与</span><span style="text-indent: 2em;box-sizing: border-box;">参与部门、一级机构与二级机构之间的行</span><span style="text-indent: 2em;box-sizing: border-box;">动协调；⑤执行过程所面临的经济、社会</span><span style="text-indent: 2em;box-sizing: border-box;">和政治条件；⑥具体执行者的态度和处理</span><span style="text-indent: 2em;box-sizing: border-box;">方式，如对政策任务的解读、执行行动的</span><span style="text-indent: 2em;box-sizing: border-box;">取向及对原始目标的回应程度等，都是决</span><span style="text-indent: 2em;box-sizing: border-box;">定实施结果的重要因素。其中，第③、⑤、</span><span style="text-indent: 2em;box-sizing: border-box;">⑥组要素直接对最终绩效产生影响(图4)。</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.8449198" data-w="374" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaZIlj3HsyZxrBrKaNZapbF7aDOBe9K9eEGeMMYaQsY6w49RluwP0I3Ath2eziaa6OsphIL6lIqgMw/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;box-sizing: border-box;">萨巴蒂尔和马兹曼尼安将政策的实</span><span style="text-indent: 2em;box-sizing: border-box;">施过程作为因变量，梳理出了影响政策</span><span style="text-indent: 2em;box-sizing: border-box;">执行的 3 组变量：①政策问题的易处理</span><span style="text-indent: 2em;box-sizing: border-box;">性，即政策问题本身的难度，如此问题</span><span style="text-indent: 2em;box-sizing: border-box;">是否有前车之鉴，政策目标群体的多样</span><span style="text-indent: 2em;box-sizing: border-box;">性、数量比例，以及政策要求其行为发</span><span style="text-indent: 2em;box-sizing: border-box;">生改变的程度。这是执行分析的主要变</span><span style="text-indent: 2em;box-sizing: border-box;">量，影响了后两组变量以及作为因变量</span><span style="text-indent: 2em;box-sizing: border-box;">的实施过程。②政策法令的执行能力，</span><span style="text-indent: 2em;box-sizing: border-box;">包括政策法令与政策实施的因果关系、</span><span style="text-indent: 2em;box-sizing: border-box;">政策目标的内在一致性、政策资源、实</span><span style="text-indent: 2em;box-sizing: border-box;">施机构和人员等要素。③影响政策实施</span><span style="text-indent: 2em;box-sizing: border-box;">的非法定变量，包括社会经济条件、公</span><span style="text-indent: 2em;box-sizing: border-box;">众媒体的态度、赞助资源和行政支持等</span><span style="text-indent: 2em;box-sizing: border-box;">要素</span><span style="text-indent: 2em;box-sizing: border-box;">( 图 5)。</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.5943925" data-w="535" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaZIlj3HsyZxrBrKaNZapbFJyt4WVBicxyhggvBO6jg54GiaPkHqMzJaNJFAtfQo8MG0I80Y0EqgHow/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">美国学者帕隆博和凯里斯特则强调，<span style="text-indent: 2em;box-sizing: border-box;">应当把政策实施研究放在一个更为宽广</span><span style="text-indent: 2em;box-sizing: border-box;">的政策制定过程中来进行。他们提出：</span><span style="text-indent: 2em;box-sizing: border-box;">①早期的政策研究采取了“政治—行政”</span><span style="text-indent: 2em;box-sizing: border-box;">两分法的立场，政策的实施，不过是以</span><span style="text-indent: 2em;box-sizing: border-box;">行政的方式来实现政治目标，但近来有</span><span style="text-indent: 2em;box-sizing: border-box;">关实施的研究则破除了这个陈旧的理念；</span><span style="text-indent: 2em;box-sizing: border-box;">②政策实施其实是政策制定过程中的一</span><span style="text-indent: 2em;box-sizing: border-box;">个合理部分，政策实施的行动及相应的</span><span style="text-indent: 2em;box-sizing: border-box;">经验认识，将有助于完善政策。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">类似的是，有学者认为在政策的初<span style="text-indent: 2em;box-sizing: border-box;">始阶段，很少有十分清晰的构想和设计，</span><span style="text-indent: 2em;box-sizing: border-box;">因此在后续的执行过程中，需要参与者</span><span style="text-indent: 2em;box-sizing: border-box;">和执行者多次协商来完善政策。这种阶</span><span style="text-indent: 2em;box-sizing: border-box;">段性的调整，普遍被认为是政策过程的</span><span style="text-indent: 2em;box-sizing: border-box;">一部分。同时，他们还探讨了政策妥协</span><span style="text-indent: 2em;box-sizing: border-box;">的问题，政策实施过程中肯定会有妥协</span><span style="text-indent: 2em;box-sizing: border-box;">发生，而了解妥协的真相，能避免将政</span><span style="text-indent: 2em;box-sizing: border-box;">策失效的责任转移到执行者的身上</span><span style="text-indent: 2em;box-sizing: border-box;">。</span><span style="text-indent: 2em;box-sizing: border-box;">这种观点带来的最大启发是，作为一种</span><span style="text-indent: 2em;box-sizing: border-box;">政治决策，空间规划在实施中肯定也会</span><span style="text-indent: 2em;box-sizing: border-box;">出现方案调整的现象，那么为什么会有</span><span style="text-indent: 2em;box-sizing: border-box;">妥协与调整？其背后的逻辑如何？是否</span><span style="text-indent: 2em;box-sizing: border-box;">影响了规划的绩效？如何解析这样的影</span><span style="text-indent: 2em;box-sizing: border-box;">响？这些也是规划实施过程评价中必然</span><span style="text-indent: 2em;box-sizing: border-box;">会涉及到的问题。</span></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.109375" data-w="640" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/tWDq3Vm3Qbd1BpAawVNcb6CQfhcNpL6RTnTB6vBG4EcJ8IM4syic08Yv0yqe4I0PnZrCvJDiaQV3k6wrYD1Rkzbg/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;margin: 10px 0%;box-sizing: border-box;"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;background-position: 0% 0%;background-repeat: repeat;background-size: auto;background-attachment: scroll;border-style: solid;border-width: 1px;border-radius: 6px;border-color: rgb(62, 62, 62);overflow: hidden;background-image: url("http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/ia4tIgFFXmLuIhdKMYJylxGld7xJA8fJCic8ick6ndlJNj0rgApcnXY9kPTyX2vatSKZpYESGDXGfGAM7PEfsZ2Kg/640?wx_fmt=png");box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin: 0px 0% -2px;box-sizing: border-box;"><section style="display: inline-block;background-color: rgb(255, 255, 255);padding: 5px;border-style: none none solid;border-width: 1px;border-radius: 6px;border-color: rgb(62, 62, 62);overflow: hidden;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;background-color: rgb(216, 98, 34);border-width: 0px;border-radius: 6px;border-style: none;border-color: rgb(62, 62, 62);overflow: hidden;padding: 5px 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="color: rgb(252, 242, 241);padding: 0px 10px;font-size: 18px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">四</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">总结与启示</strong></p></section></section></section></section></section></section></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;"><section style="border-width: 10px;border-style: solid;border-color: rgba(247, 239, 226, 0.498039);margin-bottom: -2.5em;padding: 10px;background-color: rgb(160, 160, 160);box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;"><section style="padding: 2px;display: inline-block;background-color: rgb(56, 30, 5);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(227, 163, 43);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">（一）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">对两类评价理念的总结</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: left;color: rgb(255, 255, 255);letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">总体而言，如果把规划政策的实施<span style="text-indent: 2em;box-sizing: border-box;">过程比喻为一个“黑箱”，那么“一致</span><span style="text-indent: 2em;box-sizing: border-box;">性”评价理念注重的是“规划输入”和</span><span style="text-indent: 2em;box-sizing: border-box;">“实施输出”之间的吻合关系，如果对</span><span style="text-indent: 2em;box-sizing: border-box;">应程度高，则说明规划是有成效的；“绩</span><span style="text-indent: 2em;box-sizing: border-box;">效”评价理念则更加注重对“黑箱”内</span><span style="text-indent: 2em;box-sizing: border-box;">的规划运作情况进行分析，借助相应的</span><span style="text-indent: 2em;box-sizing: border-box;">理论建构，力图使“黑箱”接近“白箱”，</span><span style="text-indent: 2em;box-sizing: border-box;">从而明确规划在“箱”内的过程逻辑和</span><span style="text-indent: 2em;box-sizing: border-box;">作用表现。需要说明的是，“一致性”</span><span style="text-indent: 2em;box-sizing: border-box;">高的规划不一定“绩效”好，因为“规</span><span style="text-indent: 2em;box-sizing: border-box;">划输入”和“实施输出”之间的吻合并</span><span style="text-indent: 2em;box-sizing: border-box;">不能证明两者的因果关系，仅靠“一致</span><span style="text-indent: 2em;box-sizing: border-box;">性”分析无法探明“黑箱”里的运作逻辑；</span><span style="text-indent: 2em;box-sizing: border-box;">“绩效”好的规划“一致性”也不一定高，</span><span style="text-indent: 2em;box-sizing: border-box;">很可能一个规划在“黑箱”中产生了巨</span><span style="text-indent: 2em;box-sizing: border-box;">大的影响力，但“实施输出”的结果却</span><span style="text-indent: 2em;box-sizing: border-box;">与规划的预期背道而驰，这也是完全可</span><span style="text-indent: 2em;box-sizing: border-box;">能的。因此，对于“一致性”和“绩效”</span><span style="text-indent: 2em;box-sizing: border-box;">这两个基本理念而言，相互之间的互补</span><span style="text-indent: 2em;box-sizing: border-box;">性与不可替代性是非常明显的。在实际</span><span style="text-indent: 2em;box-sizing: border-box;">的运用中，应当对两者的优势加以整合，</span><span style="text-indent: 2em;box-sizing: border-box;">尤其是要结合具体的城市规划运作特征，</span><span style="text-indent: 2em;box-sizing: border-box;">针对具体的案例情况，建构同时兼顾“一</span><span style="text-indent: 2em;box-sizing: border-box;">致性”和“绩效”的评价框架，由此形</span><span style="text-indent: 2em;box-sizing: border-box;">成过程与效果并行的分析途径。</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;"><section style="padding: 2px;display: inline-block;background-color: rgb(56, 30, 5);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(227, 163, 43);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">（二）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">对我国城乡规划实施评价的启示</p></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: left;color: rgb(255, 255, 255);letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">在我国近年来的城乡规划实施评价<span style="text-indent: 2em;box-sizing: border-box;">的实践中，“一致性”理念的运用是最</span><span style="text-indent: 2em;box-sizing: border-box;">多的，这是因为大部分规划实施评价都</span><span style="text-indent: 2em;box-sizing: border-box;">是为修编而启动的“程序式”评价，在</span><span style="text-indent: 2em;box-sizing: border-box;">评价思路上借助“一致性”评价标准寻</span><span style="text-indent: 2em;box-sizing: border-box;">找规划预期和实施结果之间的偏差，从</span><span style="text-indent: 2em;box-sizing: border-box;">而为规划修编提供依据，成了较为常见</span><span style="text-indent: 2em;box-sizing: border-box;">的做法</span><span style="text-indent: 2em;box-sizing: border-box;">。因此，在大量的规划实施</span><span style="text-indent: 2em;box-sizing: border-box;">评价的成果中，蓝图比对、政策实现和</span><span style="text-indent: 2em;box-sizing: border-box;">目标达成等评价思路成为主流。当然，</span><span style="text-indent: 2em;box-sizing: border-box;">“一致性”的效果评价肯定是规划实施</span><span style="text-indent: 2em;box-sizing: border-box;">评价的基础内容，但仅仅只有“一致性”</span><span style="text-indent: 2em;box-sizing: border-box;">评价思路远远不够。因此，规划实施过</span><span style="text-indent: 2em;box-sizing: border-box;">程的“黑箱”中发生了什么，规划实施</span><span style="text-indent: 2em;box-sizing: border-box;">为何会如此错综复杂，规划因素的“绩</span><span style="text-indent: 2em;box-sizing: border-box;">效”如何体现等，都是非常值得探讨的</span><span style="text-indent: 2em;box-sizing: border-box;">议题。</span></p><p style="text-indent: 2em;clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">需注意的是，虽然西方学者已经提<span style="text-indent: 2em;box-sizing: border-box;">供了有关规划实施过程“绩效”的评价</span><span style="text-indent: 2em;box-sizing: border-box;">理论，但是在实际操作中还是会面临诸</span><span style="text-indent: 2em;box-sizing: border-box;">多困境，有三方面值得注意：①政治正</span><span style="text-indent: 2em;box-sizing: border-box;">确之困境。政策研究的先驱威尔达夫斯</span><span style="text-indent: 2em;box-sizing: border-box;">基曾一针见血地指出，公共行政组织的</span><span style="text-indent: 2em;box-sizing: border-box;">建立不是用来被评价的，公共行政组织</span><span style="text-indent: 2em;box-sizing: border-box;">是基于公信力设置的，如果去评价这一</span><span style="text-indent: 2em;box-sizing: border-box;">机构的运作，则意味着对公信力的质疑，</span><span style="text-indent: 2em;box-sizing: border-box;">这与该机构存在的基础相悖</span><span style="text-indent: 2em;box-sizing: border-box;">。②理</span><span style="text-indent: 2em;box-sizing: border-box;">性逻辑之困境。规划实施过程是多因素</span><span style="text-indent: 2em;box-sizing: border-box;">共同作用的过程，这些因素紧密联系、</span><span style="text-indent: 2em;box-sizing: border-box;">互相制约，而规划实施结果通常具有扩</span><span style="text-indent: 2em;box-sizing: border-box;">散性和广泛的影响性，涵盖了有形与无</span><span style="text-indent: 2em;box-sizing: border-box;">形的层次，因此要梳理出规划实施前后</span><span style="text-indent: 2em;box-sizing: border-box;">的逻辑关系，是非常困难的</span><span style="text-indent: 2em;box-sizing: border-box;">。③价值</span><span style="text-indent: 2em;box-sizing: border-box;">难调之困境。由于规划实践涉及到的关</span><span style="text-indent: 2em;box-sizing: border-box;">系复杂，很难找到一条评价规划成败的</span><span style="text-indent: 2em;box-sizing: border-box;">“普世价值”。一些规划现象在某个角</span><span style="text-indent: 2em;box-sizing: border-box;">度看是有成效的，但在另一个角度看则</span><span style="text-indent: 2em;box-sizing: border-box;">有问题，故而评价结论本身较难以达成</span><span style="text-indent: 2em;box-sizing: border-box;">共识。</span></p><p style="text-indent: 2em;clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">新时期随着改革开放逐步深化，自<span style="text-indent: 2em;box-sizing: border-box;">然资源部的成立和城乡规划事权的逐步</span><span style="text-indent: 2em;box-sizing: border-box;">明晰，以及大数据技术的飞速发展，人</span><span style="text-indent: 2em;box-sizing: border-box;">们有可能实现对城市空间的精细化管理、</span><span style="text-indent: 2em;box-sizing: border-box;">对规划实践的精准化跟踪，各类空间规</span><span style="text-indent: 2em;box-sizing: border-box;">划实施的过程和结果均有机会在开明的</span><span style="text-indent: 2em;box-sizing: border-box;">政策导向下，借助完善的数据信息平台</span><span style="text-indent: 2em;box-sizing: border-box;">予以呈现。可以预见，将“一致性”和“绩</span><span style="text-indent: 2em;box-sizing: border-box;">效”相结合的规划实施评价有望于在不</span><span style="text-indent: 2em;box-sizing: border-box;">久的将来得以实现。</span></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: left;color: rgb(255, 255, 255);letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section></section><section style="float: left;text-align: start;padding-left: 10px;display: inline-block;line-height: 0;max-width: 5em !important;box-sizing: border-box;"><img class="raw-image" data-ratio="0.6875" data-w="128" 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0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(21, 103, 167);color: rgb(255, 255, 255);font-size: 14px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">《规划师》杂志社                                         </p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;"></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: left;color: rgb(21, 103, 167);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;"> </span><span style="font-size: 14px;letter-spacing: 0px;line-height: 1.45;box-sizing: border-box;">地址：广西南宁市青秀区月湾路1号南国弈园6楼</span></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">邮编：530029</span></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">邮箱：planner@21cn.net</span></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">网址：www.planners.com.cn</span></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">电话：0771-2438012</span></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">传真：0771-2436269</span></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin: 10px 0%;box-sizing: border-box;"><section style="display: inline-block;width: 100%;vertical-align: top;background-image: url("http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/NCNuQKlREhj0kEr1cf72UqpmicyQkC4nng7D43LQJ9rgjX7FYGUvicnFRnt9SjuMZrj2DkdKhwetvHztn43tsaibA/640?wx_fmt=gif");background-position: 1.2602% 100.746%;background-repeat: repeat-x;background-size: 76.798%;background-attachment: scroll;padding: 10px 10px 5px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin: 10px 0% 0px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: bottom;width: 61.8%;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin: -10px 0% 0px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: 25%;box-sizing: border-box;"><section style="box-sizing: border-box;" 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1px;font-size: 15px;line-height: 1.5em;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">多</p></section></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 25%;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;font-size: 10px;box-sizing: border-box;"><section style="padding: 4px;display: inline-block;background-color: rgb(247, 177, 32);box-sizing: border-box;"><section style="border-color: white;width: 1.6em;height: 1.6em;border-style: solid;border-width: 1px;font-size: 15px;line-height: 1.5em;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">精</p></section></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 25%;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;font-size: 10px;box-sizing: border-box;"><section style="padding: 4px;display: inline-block;background-color: rgb(247, 177, 32);box-sizing: border-box;"><section style="border-color: white;width: 1.6em;height: 1.6em;border-style: solid;border-width: 1px;font-size: 15px;line-height: 1.5em;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">彩</p></section></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="color: rgb(67, 103, 117);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">请猛戳右边二维码</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: left;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: left;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: left;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="text-align: left;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section></section><section style="display: inline-block;vertical-align: bottom;width: 38.2%;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section style="color: rgb(67, 103, 117);font-size: 12px;box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">公众号ID</p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="margin: 0px 0%;box-sizing: border-box;"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="1" data-w="430" src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0miaZIlj3HsyZxrBrKaNZapbFiaT885nMr1yUOv0A2LTpWTkfsICCsLaO4Nic5b40SfnRJdxTD9Diaia72Q/640?wx_fmt=jpeg" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="jpeg"  /></section></section></section></section></section></section></section></section></section></section></section><section style="width: 9px;height: 9px;float: left;border-bottom: 2px solid rgb(227, 163, 43);border-left: 2px solid rgb(227, 163, 43);box-sizing: border-box;"></section><section style="width: 9px;height: 9px;float: right;border-bottom: 2px solid rgb(227, 163, 43);border-right: 2px solid rgb(227, 163, 43);box-sizing: border-box;"></section><section style="clear: both;box-sizing: border-box;"></section></section></section></section></section>
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