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本文来自：市政厅 按：上下班路上能顺便完成多少事，与城市生活的宜居程度紧密相关。办一件小事要花费很长时间，这往往是我们疲劳感的重要来源。故而土地的混合利用非常重要。

本文作者孟菲是加州大学戴维斯分校交通研究所项目主管。彼得?卡尔索普是卡尔索普事务所创始人，新城市主义大会的第一任主席和创始人之一。彭卓见是卡尔索普事务所高级设计师，主要从事中国的城市设计。

国开金融、能源创新组织及能源基金会已共同发布《国开金融绿色智慧城镇开发导则》。我们编撰该系列文章，旨在就中国城市可持续发展相关问题做深入研究。绿色智慧导则的下载链接：http://energyinnovation.org/what-we-do/urban-sustainability/7118-2/

本篇为绿色导则#3，关键词是混合利用。

从“多少钱”到“多少分”：土地混合利用带来的影响

(绿色导则#3 混合利用)

孟菲  彭卓见   彼得?卡尔索普

From “What’s the Cost” to “What’s the Score”:  The Effect of Mixed-Use Development

(GREEN GUIDELINE #3, MIXED USE)

Meng Fei, Nelson Peng, Peter Calthorpe

下班后，骑着自行车从单位出来，不久就到了学校，扶着孩子的腰在后凳上坐好，还没聊完“今天在学校学到什么”，就骑到了菜市场，买完菜挂在车把上，一会儿就到家准备晚饭了。二十年前，这是很多中国家庭的每日缩影。二十年后，物资充沛了、经济发展了、科技进步了，但生活却“艰难”了：去单位得开车，去超市得在门前转圈找车位，接孩子更是在学校门口“一位难求”。其中原因很多，但最为直接的原因在于，以往功能多样的城市被拆解、分别放置到了不同地方。换成城市规划的术语，就是单一的土地利用。

From work, you ride your bike to your child’s school to pick them up. With your kid settled on the back of the bike, you catch up on their day at school before you arrive at the grocery store. After buying food, it would then not be long until you were at home preparing dinner.  This was a common family scene in China. Twenty years later, goods are more plentiful, the economy is more developed, technology has improved, but in many ways, life has become harder. You have to drive to get to work, drive many circles around the block to find parking at the grocery store. Then, picking up your child from school yields even more driving and parking. There are many causes for this, but the most direct is that formerly mixed-use cities are getting split up. Urban planners call this single-use zoning.

单一的土地利用也并非负面，它在城市发展的过程中扮演了非常重要的角色，至今仍是城市正常运作的重要保障。主要是把不兼容的功能分离，例如，将有污染的工矿企业集中布局、远离住宅并加以绿化带缓冲隔离，以确保居住质量。然而，由于土地开发模式以及市场等诸多原因，那些本来兼容的功能也被分隔开来，出现了成片的住宅却缺乏商业和公共服务配套或是偌大一片办公商务区无处买早餐的情况。而其解决途径在于混合的土地利用。

Single-use zoning still has its virtues and it can play a vital role in urban development.  The main purpose is to separate incompatible uses, such as locating polluting industries far from residential areas. Single-use green belts can also provide buffers and keep quality of life high. However, land development models and market trends have disrupted the placing of compatible uses next to each other. What has emerged are sprawling residential areas that lack businesses and public service facilities, or office parks where you can not even find a place to have breakfast. The solution is to build mixed-use neighborhoods.

混合的土地利用策略，鼓励城市将相互兼容的功能进行竖向混合或者就近布局，从而形成步行和自行车出行的有利环境，并使得人们一次出门便能解决各类生活所需。在国内的大城市，如果一套住宅周边就近能有医院、学校、商铺、饭馆、公园，那房价一定不菲。其实，以车为本的城市建设问题，在美国最为突出，政府、学界、专业机构以及民众都在逐步推行混合土地利用，“步行指数(Walk Score)是其中的成功举措之一。

Mixed-use development integrates compatible land-uses to create an environment that encourages biking and walking, and allows people to easily access key amenities. In most big cities in China, if a property is immediately surrounded by a school, hospital, shops, restaurants, and parks, rent will certainly be high. This problem is actually more serious in the U.S. where cars dominate. Politicians, academics, professional organizations, and civil society have been pushing for mixed-use. Among them, one of the most successful efforts is calculating “Walk Scores.”

步行指数：社区与住房的新评估体系

WalkScore – A new evaluation system for housing and neighborhood

“步行指数”是由三个美国人(Matt Lerner, Mike Mathieu, Jesse Kocher)2007年在西雅图创立的网站(www.walkscore.com)，网站面对大众开放。其核心是一套计算机算法，可以根据日常便利设施的数量和布局、步行的适宜度，为美国任意地址计算出一个从0-100的步行指数得分。

WalkScore is a website created in 2007 in Seattle by three Americans (Matt Lerner, Mike Mathieu, Jesse Kocher) (www.walkscore.com). The website is publicly accessible. At the core of the website is an algorithm that generates a score from 0 – 100 for any U.S address based on the number and layout of amenities and walkability.

<img alt="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/ZKxpoW5ACbYbfibdeOXHpt8GtUUpA3kSVRSRJUfKoeuFpPSiaheIxGLeQvQAKyrgAVcPDry04PePRs856PsL3mCg/0?wx_fmt=jpeg" data-s="300,640" data-type="jpeg" data-ratio="0.5565529622980251" data-w="" />
用户可以通过网站或者手机应用轻松获取各地点的得分 (www.walkscore.com)

Users can easily get the WalkScore for any location from the website or cellphone app.

步行指数将日常便利设施分为11个类别：餐馆与酒吧，咖啡馆，杂货店，户外活动场所，学校，汽车与自行车租赁点，艺术与社区服务，其他购物，娱乐，健康和杂务（银行、邮局等），通过街道交叉口密度、街区尺度，结合步行距离衰减（越远得分越低），计算分数，分数又可进一步归成5个类别：

The WalkScore categorizes amenities into 11 types: restaurant & bar, café, grocery, park, schools, car share and bike rental, arts and community services, other shopping, recreation, health and errands (such as banks and post offices). Intersection density, block scale, and walking distance to amenities are all considered into the algorithm. The scores are further categorized into 5 types:

对于步行、混合利用、人本尺度等健康的社区要素，通过几十年的努力，已经在美国深入人心，成为主流，而步行指数首次对这些概念进行了量化，让大众能获取一个简单易于比较的指标，来衡量各个地点的生活便捷程度，从而取得了极为深远的影响力。其在房地产方面的影响尤为显著，咨询公司Impresa研究了全美15个地区9万多个房产交易记录，结果，显示每1分的步行指数增加可以带来高达3000美金的房价差异。无论买房还是租房，“多少分”这个话题越来越多地取代了“多少钱”，避免了尴尬，也代表了一个积极的价值取向。

In the past few decades, walkability, mixed use, human scale, and other elements of a healthy neighborhood have been accepted as mainstream in America. However, WalkScore is the first time these concepts have been quantified. Now, the public has an index to easily compare the convenience and accessibility of different neighborhoods, and with this comes far-reaching impacts. It has been widely adopted by many fields, especially in real estate. The consulting firm IMPRESA has studied 90,000 real estate transactions among 15 U.S metropolitan areas and found out the difference in housing value for each WalkScore point can be as high as $3,000. In the housing and rental markets, people are now asking “What’s the WalkScore” instead of “How much,” a topic that is less intrusive and represents a positive trend.

<img alt="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/ZKxpoW5ACbYbfibdeOXHpt8GtUUpA3kSVrlIBUzGRic5ibKEqSticyHjSXM99rY1MVnS5hJlwPicUahvV0Hak288YaA/0?wx_fmt=jpeg" data-s="300,640" data-type="jpeg" data-ratio="0.5278276481149012" data-w="" />
各大地产销售与租赁的网站，例如Redfin和 ZipRealty都将步行指数直接纳入到物业比选之中 (www.redfin.com)

Popular real estate websites, such as Redfin and ZipRealty have incorporated WalkScore in their property selection information.

通过规划细化实现土地混合利用：来自济南的经验

Enhancing Mixed-use through Detailed Zoning – Experience from Jinan

WalkScore 步行指数在北美的普及，将市场对紧凑、业态混合社区的青睐传达给了开发商和政府，可以说，是一种自下而上逐步而成的影响力。而在中国，情况则不太一样，首先土地归国家所有，政府在土地开发上有非常大的引导力，其二中国现阶段城市化速度相当快，市场的错误模式可以急速复制，因此，政府从上至下的引导非常必要。这里介绍济南张马片区的规划案例，来展示政府如何通过细化规划来引导土地的混合利用。

The popularity of WalkScore in North America has signaled the market preference for compact and mixed-use development to governments and developers. This has been a bottom-up process. The situation is different in China. Firstly, the government owns all the land and the government has a strong guiding role in development. Secondly, China’s urbanization is occurring very rapidly so wrong patterns often repeat themselves, making top-down government intervention necessary. In the following, the case of Jinan shows how the government can use detailed regulatory plans to introduce mixed-use development.

在济南西高铁站投入运营之后，济南正在抓紧建设市内第二个高铁站：济南新东站。和国内高铁新城的理念一样，新东站的建设带动了周边地区的发展，而张马片区则是新东站带动的首批项目之一。场地总面积550公顷，邀请了卡尔索普事务所主持前期的城市设计，济南市规划设计研究院三所配合后续控规编制和技术支持。考虑到新城建设中，商业氛围需要较长时间来培育，而开发商往往偏好住宅而压低商业配套的趋利行为，设计方建议将场地分为四期开发，在四期中合理分配商业量，同时在设计中细化商业配套的比例和布局并落实到法定控规之中以确保实施。具体特色包括：

With the Jinan West high speed train station in operation, the city is busy building the Jinan East High Speed Rail Station, the city’s second high-speed rail station. The new station will be a major impetus for development in its vicinity, and the Zhangma District (about 550 ha) is the earliest. Calthorpe Associates has been invited to lead the urban design, partnered with the local design institute that will provide regulatory and technological support. With the development of new districts, it can take a while to build up the atmosphere for commercial activity. Developers can be biased to building residential, which can delay the commercial development.

In this plan, specific features include:

1.为场地布局丰富的绿道网络，在绿道交接口设计社区公园作为社区中心安排公共配套服务设施（幼托、小学、中学、养老院、文化活动中心等）。这样片区内的居民（特别是老人与小孩）可以通过步行或者自行车来抵达场地之中的任何公共配套服务设施。极大增加了服务设施的非机动车可达程度。

Plan a dense green road network, and at the intersections arrange neighborhood parks to serve as community centers that provide public services (pre, elementary, and middle schools; elderly care centers; cultural centers; etc.). This way, all of the area’s residents (especially the elderly and children) can walk or bike to any public facilities, greatly enhancing the level of car-free accessibility.

<img alt="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/ZKxpoW5ACbYbfibdeOXHpt8GtUUpA3kSVVmRhibhlY0BeLuTZl5LNlM1awjt22v45FIEjdj6tPPG2gT2DyMa2icTw/0?wx_fmt=jpeg" data-s="300,640" data-type="jpeg" data-ratio="0.7271095152603232" data-w="" />
绿道系统与公共配套设施（卡尔索普事务所）Green road network and public amenities facilities (Calthorpe)

2．对于大的社区项目，政府会要求配建一定的商业配套设施，而 开放商往往倾向于将这些商业配套设施集中起来，以本项目为例，倘若将设计交由开发商，那很可能的结果是在5平方公里的场地内所有的商业服务设施都集中在南部临主干道的一两个地块，使得北部大部分居民无法步行抵达。为了防止这样的现象发生，方案为每一个商住混合地块都安排了商业的比例，确保了商业配套设施的均匀分布，同时也保证了街道两侧能够布局商业来丰富步行空间。

For large residential neighborhoods, the government usually requires that developers plan for a certain amount of commercial services. With this project in Jinan, if the land was given to a developer, all of the commercial space would be concentrated to one or two areas, making it difficult for many of the residents in the northern section to have walking access to the commercial space. To prevent this, we distribute the commercial spaces throughout the commercially zoned areas. This guarantees more even distribution of the commercial space and that residents can access the commercial areas by walking.

3．卡尔索普事务所与济南市规划院紧密合作，将设计中的重点和细节全部转换成控制性详细规划，再取得规划部门的认可后入库成为法定文件，并纳入到了土地出让条件之中，为设计的实施提供了保障。控规中，增加了每个地块的“最低临街商业面积”以确保便利设施的均匀分布，并且增加图则详细指定临街商业和社区配套中心的位置，来保证设施位置的最优化。

Calthorpe Associates worked closely with the Jinan Planning Bureau to convert the technical details to a detailed compact development plan. They also obtained the Jinan Planning Department’s approval to turn the plan into a legal document and that it was also included in the land sale clauses. This guarantees full implementation of the design. In the regulatory plan, the “minimum street front floor area for businesses” was increased to ensure the even distribution of amenities and to optimize the locations of the street front businesses and community centers.

<img alt="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/ZKxpoW5ACbYbfibdeOXHpt8GtUUpA3kSVWhWzRAIYGb5oLlekKjT5rx0Tia2uBK1BiaejppiaZ3gBF8aicTCbV4ZIPA/0?wx_fmt=jpeg" data-s="300,640" data-type="jpeg" data-ratio="0.585278276481149" data-w="" />
张马片区控制性详细规划街区设计图，规定了商铺与公共服务设施的均匀布局（济南市规划设计研究院三所）

The Zhangma neighborhood compact zoning map shows an even distribution of public facilities and commercial amenities (Jinan Planning Institue #3).

混合利用在国内面临的挑战与建议

Challenges and Suggestions for Mixed-Use Strategy in China

尽管混合利用已经逐步在中国得到认可，但市场、管理、规划等方面仍然存在一些壁垒。

首先在市场方面，近二三十年迅速的城市化过程中，一批优秀的地产企业逐步成型壮大，但绝大多数都专攻住宅。“拿地-开发-出售”这一套熟练动作，在住房市场迅猛发展的背景下为地产企业带来了丰厚回报。而与楼盘配套的商业则相对难出手，特别是开发量较大的配套商业，需要长期精心管理，这涉及与快速住宅开发不同的技能、人员和管理以及回收期望。就笔者在中国的项目经验来看，开发商在项目过程中都会尽力压低商业和公共服务的配比，争取更多的住宅比例。

Although mixed-use is gradually gaining acceptance in China, it still faces market, property management, and planning barriers.

First, the market: over the past two to three decades of rapid urbanization, a number of outstanding real estate firms have emerged and matured, but most of them are housing developers. Compared to the quick and lucrative housing developments, commercial real estate, especially large developments, requires long-term management with a longer payback period. From the authors’ experience working on Chinese projects, developers in most cases will try to lower the ratio of public amenities and commercial elements to gain more land for residential development.

在规划方面，1991年开始实行的《城市用地分类与规划建设用地标准》中规定此标准只适用于“城市用地计算及统计工作”，即仅适用规划相关的统计。然而在城市规划编制和管理实践中，无论总体规划还是详细规划都充分利用了这一标准做了大量统计之外的工作。这种静态、刚性的土地利用分类导致了规划以及管理缺乏弹性，无法应对市场变化做出动态调整。例如现在市场上普遍出现的商住楼，用地分类中就不存在，而是各地的规划编制人员自行编制编码，例如RC或者CR。随着市场的演化，特别是互联网的冲击下，各类混合业态将层出不穷，规划编制的手段需要及时跟进。

Second, urban planning policies have also made implementing mixed-use difficult. The Urban Land-Use and Planning Categorization Standard issued by MOHURD in 1991 was meant for statistical work related to urban planning. However, due to the lack planning tools, this standard was widely applied in all types of planning activities nationwide. It rigidly separates land uses and provides little flexibility in the planning and management, while also lacking mechanisms to adapt to a changing market. For example, there is no categorization for residential towers with retail, which are commonly seen in most cities. The market is evolving, the internet is becoming more prominent, and mixed-use commercial development patterns will need to become even more sophisticated. Cities must catch up with these trends and establish the right tools and regulations to adapt.

上述案例为城市推行土地混合利用提供了一些建议：

The above cases provide a few suggestions for how mixed-use should be implemented:

1．使用一个简单明了、易于比较的指标来传达一个理念。尽管步行指数背后所涉及的计算方法以及规划理论繁多，但她却能将“宜居”“健康社区”“适宜步行”等模糊的概念精简量化成一个简单的分数供人使用，深入人心。

Use a simple and comparable index to advocate planning ideas. Although there are many approaches and methods to measure walkability, it is necessary to turn concepts such as livability or walkability into a simple and usable metrics for people to understand and apply to their own lives.

2．结合步行系统考虑各类商业与公共配套设施的布局。推动混合土地利用的目的在于为人们的生活增添便利、减短通勤距离、鼓励非机动车出行，因此在规划中不仅仅要考虑就近设置各类便利设施，同时也要考虑这类设施的可达性。

Design the walking network based on where public amenities and services are located. The purpose of mixed-use is to make peoples’ lives more convenient by shortening commutes and encouraging car-free travel. Hence, it is important to not just consider the availability of these amenities but also the accessibility.

3．妥善利用政府在土地利用管理和控制上的导向性和话语权，通过细化控规为不同的地区制定合理的土地利用方案，推动土地的混合利用。

The municipal government should take advantage of their administrative authority and seek a more active role and use detailed regulatory plans to promote mixed-use.

4．土地混合利用不仅仅需要合理的规划以及政府的推动，同时也需要完善的后续跟踪管理，以确保不同业态之间相互协作。

The mixed-use strategy requires longer term proper management. There should be more collaboration between different groups to streamline the process.

作者简介：

About the authors:

孟菲

加州大学戴维斯分校交通研究所项目主管。多年来致力于推动中国的低碳和可持续城市发展。在项目设计、实施和监管领域拥有丰富经验，并多次承担国内和国际大型活动的组织工作。

Fei Meng

Fei is a Program Manager at Institute of Transportation Studies at UC Davis. She is a China focused low carbon city and sustainability expert.  She is a results oriented project developer with successful record in national and international forums designing, launching, and successfully implementing new projects and programs.

彼得?卡尔索普

卡尔索普事务所创始人，新城市主义大会的第一任主席和创始人之一。卡尔索普先生在城市规划和设计领域有着超过三十年的经验，项目遍布全球，同时著述了该领域的多本书籍，包括《气候变化之际的城市主义》、《未来美国大都市》、《区域城市》以及《TOD在中国》等。

Peter Calthorpe

Founder of Calthorpe Associates, founding member and the first president of Congress for New Urbanism. Mr. Calthorpe has practiced urban planning and design globally for over 30 years and has many renowned publications in the field, including Urbanism in the Age of Climate Change, The Next American Metropolis, The Regional City and TOD in China。

彭卓见

卡尔索普事务所高级设计师，主要从事中国的城市设计，项目包括昆明呈贡新城、重庆悦来生态城、厦门马銮湾、珠海唐家湾以及济南新东站的城市设计。本科毕业于中山大学，硕士毕业于宾夕法尼亚大学。

Nelson Peng

Senior Designer in Calthorpe Associates, main practice in urban design in China. Projects include Chenggong New Town, Yuelai Eco City, Xiamen West, Zhuhai Tangjiawan Bay and Jinan New East Station master plan. Mr. Peng got his bachelor degree from Sun Yat-sen University and master from University of Pennsylvania.

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