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                        <section style="box-sizing: border-box; background-color: rgb(255, 255, 255);"><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px;  box-sizing: border-box; "><section class="" style="padding-bottom: 1.2em; box-sizing: border-box;"><section style="border-top-width: 2px; border-top-style: solid; border-bottom-width: 2px; border-bottom-style: solid; border-top-color: rgb(21, 149, 121); border-bottom-color: rgb(21, 149, 121); box-sizing: border-box;"><section style="box-sizing: border-box;"><section class="" style="display: inline-block; width: 100%; vertical-align: top; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: center; color: rgb(21, 149, 121); box-sizing: border-box;"><section style="text-align: right; box-sizing: border-box;"><strong style="box-sizing: border-box;">点击蓝字快速关注规划师杂志</strong></section></section></section></section></section></section><section style="float: left; margin-top: -13px; margin-bottom: -13px; margin-left: 15%; box-sizing: border-box;"><section style="width: 27px; height: 27px; margin-left: 15%; 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: 27px; height: 27px; border-right-width: 2px; border-right-style: solid; border-bottom-width: 2px; border-bottom-style: solid; border-right-color: rgb(21, 149, 121); border-bottom-color: rgb(21, 149, 121); box-sizing: border-box; background-color: rgb(254, 255, 255);"><section style="width: 22px; height: 22px; margin: 1px auto; border: 2px solid rgb(21, 149, 121); box-sizing: border-box;"><section style="width: 16px; height: 16px; margin: 1px auto 0px; border: 1px solid rgb(21, 149, 121); box-sizing: border-box;"><section style="width: 0px; margin: 1px auto 0px; border-right-width: 12px; border-right-style: solid; border-right-color: rgb(21, 149, 121); border-top-width: 12px !important; border-top-style: solid !important; border-top-color: transparent !important; box-sizing: border-box;"></section></section></section></section></section></section><section class="hacking" style="margin-top: -50px; box-sizing: border-box;"> </section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0mia4t1eDRonUhibTTicicwc8jYBERJURribM15K69Gpr2mScWnrBqk1azcxaBUVSMvp4bvk5ycP0vNaCpQ/0?wx_fmt=png" data-ratio="0.6402877697841727" data-w=""  /></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="border: 2px solid rgb(21, 149, 121); padding: 10px; border-radius: 0.8em; box-sizing: border-box;"><section class="" style="border: 2px dotted rgb(21, 149, 121); padding: 10px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">随着国内外环境的深刻变化,“十三五”时期的城市发展在城镇化速度及格局、城乡关系、城市建设的目标、内涵和<span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">管理方式等方面呈现出了不同于以往的新态势，而城市规划作为促进城市健康发展的基本手段和关键途径，对于推动城市乃至</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">社会经济的转型升级具有重要意义。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">因此，作者</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">南京大学建筑与城市规划学院硕士研究生</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">应婉云</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">，南京大学城市规划系硕士研究生</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">肖菲</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">，南京大学建筑与城市规划学院教授、博士生导师</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">罗小龙</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">在《规划师》2016年第3期撰文，</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">通过对“十三五”时期城市发展新态势的分析总结，发掘和反思当前我国城市</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">发展中亟待解决的问题，从城市规划角度寻求相应的解决之道，继而探索并提出新时期城市规划发展的新方向。</span></section></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="width: 100%; text-align: center; box-sizing: border-box;"><img style="max-width: 100%; width: 50%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/UACiaJoYu2oXa6NYFvrUcAJHqBYFPqx32LdlZtPMLhPrRClDSNWPgicu2T345TS2mNNMn4gu1PEicagbX9v6WsyhQ/0?wx_fmt=png" data-ratio="0.16906474820143885" data-w="278"  /> </section><section class="" style="padding: 0.3em 0.5em; border-radius: 0.5em 0.5em 0px 0px; margin-top: -0.8em; text-align: center; width: 100%; color: white; box-sizing: border-box; background-color: rgb(21, 149, 121);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">“十三五”时期城市发展新态势</strong></section></section><section class="" style="border: 1px solid rgb(21, 149, 121); border-radius: 0px 0px 0.5em 0.5em; padding: 10px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section class="" style="width: 1.5em; height: 1.5em; border: 1px solid rgb(21, 149, 121); margin: auto; display: inline-block; vertical-align: middle; border-radius: 100%; font-weight: 500; text-align: center; font-size: 16px; line-height: 1.5em; box-sizing: border-box; background-color: rgb(71, 193, 168);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">1</strong></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section class="" style="font-size: 16px; color: rgb(39, 8, 8); box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">城镇化进入深度调整期</strong></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="display: inline-block; width: 100%; border: 2px dashed rgb(192, 200, 209); padding: 10px; box-sizing: border-box; background-color: rgb(239, 239, 239);"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">在 “十三五”<span style="line-height: 1.6; box-sizing: border-box;">时期我国虽然不可能出现西方国家大规</span><span style="line-height: 1.6; box-sizing: border-box;">模的去工业化和去城镇化现象，但是城</span><span style="line-height: 1.6; box-sizing: border-box;">市发展动力正在由工业驱动转向工业和</span><span style="line-height: 1.6; box-sizing: border-box;">服务业“双轮”驱动。以往依赖农村农</span><span style="line-height: 1.6; box-sizing: border-box;">业人口以极快速度转向城市工商业的城</span><span style="line-height: 1.6; box-sizing: border-box;">镇化步伐将逐步放缓，因此人口城镇化</span><span style="line-height: 1.6; box-sizing: border-box;">速度也将趋于平缓。在城镇化进程放缓</span><span style="line-height: 1.6; box-sizing: border-box;">的同时，我国城乡关系开始发生倒置。</span><span style="line-height: 1.6; box-sizing: border-box;">根据国家统计局2015 年前三季度的数</span><span style="line-height: 1.6; box-sizing: border-box;">据显示，农村外出务工劳动力总量已表</span><span style="line-height: 1.6; box-sizing: border-box;">现出零增长，</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">“归乡不进城”将成为“十三五”</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">时期我国城镇化面临的又一挑战。</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">除此之外，现有研究表明我国城镇</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">化的格局也正在发生深刻变化——随着</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">东部地区城市发展进入调整优化阶段，</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">中西部城市群的发展将成为城镇化的主</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">要驱动力。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;"></span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.6; box-sizing: border-box;"></span></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section class="" style="width: 1.5em; height: 1.5em; border: 1px solid rgb(21, 149, 121); margin: auto; display: inline-block; vertical-align: middle; border-radius: 100%; font-weight: 500; text-align: center; font-size: 16px; line-height: 1.5em; box-sizing: border-box; background-color: rgb(71, 193, 168);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">2</strong></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section class="" style="font-size: 16px; color: rgb(39, 8, 8); box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">城市品质提升成为新目标</strong></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="display: inline-block; border: 2px dashed rgb(192, 200, 209); padding: 10px; box-sizing: border-box; background-color: rgb(239, 239, 239);"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;"><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">“十三五”时期，我国城市发展正由外</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">延扩张向内涵增长转变，城市品质已经</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">成为城市转型发展的重要方向。</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">在国</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">家战略层面，党的“十八大”提出了经</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">济建设、政治建设、文化建设、社会建</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">设和生态文明建设“五位一体”的总体</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">布局，推进以人为核心的新型城镇化建</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">设。这表明，城市规划的方向将由注重</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">“物”的合理走向注重“人”的需求，</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">通过提升城市综合品质满足多元化的城</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">市生活需要，推动城镇化的转型发展。</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">粗放式的</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">城市建设和管理模式是城市“大跃进”</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">发展时代的产物，面对“十三五”时期</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">新的城市发展需求，推动城市品质提升</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">成为规划建设的新目标，城市精细化管</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">理、城市特色发扬和居民幸福感塑造等</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">成为亟待突破的方面。</span></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section class="" style="width: 1.5em; height: 1.5em; border: 1px solid rgb(21, 149, 121); margin: auto; display: inline-block; vertical-align: middle; border-radius: 100%; font-weight: 500; text-align: center; font-size: 16px; line-height: 1.5em; box-sizing: border-box; background-color: rgb(71, 193, 168);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">3</strong></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section class="" style="font-size: 16px; color: rgb(39, 8, 8); box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">提升城市治理能力成为主要任务</strong></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="display: inline-block; width: 100%; border: 2px dashed rgb(192, 200, 209); padding: 10px; box-sizing: border-box; background-color: rgb(239, 239, 239);"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">中共中央十八届三中全会通过的《中<span style="line-height: 1.6; box-sizing: border-box;">共中央关于全面推进依法治国若干重大</span><span style="line-height: 1.6; box-sizing: border-box;">问题的决定》，首次将“国家治理体系</span><span style="line-height: 1.6; box-sizing: border-box;">和治理能力现代化”提升到“全面深化</span><span style="line-height: 1.6; box-sizing: border-box;">改革的总目标”的战略高度，并且提出“创</span><span style="line-height: 1.6; box-sizing: border-box;">新社会治理”的要求。城市治理作为社</span><span style="line-height: 1.6; box-sizing: border-box;">会治理的重要组成部分，其治理结构、</span><span style="line-height: 1.6; box-sizing: border-box;">发展趋势对于“十三五”时期的城市发</span><span style="line-height: 1.6; box-sizing: border-box;">展具有深远的影响。</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">城市规划编制和管</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">理如何创新以应对城市治理新形势，是</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">“十三五”时期规划革新的重要目标和</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">方向之一。</span></section></section></section></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="width: 100%; text-align: center; box-sizing: border-box;"><img style="max-width: 100%; width: 50%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/UACiaJoYu2oXa6NYFvrUcAJHqBYFPqx32LdlZtPMLhPrRClDSNWPgicu2T345TS2mNNMn4gu1PEicagbX9v6WsyhQ/0?wx_fmt=png" data-ratio="0.16906474820143885" data-w="278"  /> </section><section class="" style="padding: 0.3em 0.5em; border-radius: 0.5em 0.5em 0px 0px; margin-top: -0.8em; text-align: center; width: 100%; color: white; box-sizing: border-box; background-color: rgb(21, 149, 121);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">我国城市规划中亟待解决的问题</strong></section></section><section class="" style="border: 1px solid rgb(21, 149, 121); border-radius: 0px 0px 0.5em 0.5em; padding: 10px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section class="" style="width: 1.5em; height: 1.5em; border: 1px solid rgb(21, 149, 121); margin: auto; display: inline-block; vertical-align: middle; border-radius: 100%; font-weight: 500; text-align: center; font-size: 16px; line-height: 1.5em; box-sizing: border-box; background-color: rgb(71, 193, 168);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">1</strong></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section class="" style="font-size: 16px; color: rgb(39, 8, 8); box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">空间规划权力存在冲突</strong></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="display: inline-block; width: 100%; border: 2px dashed rgb(192, 200, 209); padding: 10px; box-sizing: border-box; background-color: rgb(239, 239, 239);"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">近年来，随着各类空间规<span style="line-height: 1.6; box-sizing: border-box;">划编制数量激增，权力冲突和博弈愈发</span><span style="line-height: 1.6; box-sizing: border-box;">激烈，“规划打架”成为普遍问题。空</span><span style="line-height: 1.6; box-sizing: border-box;">间规划作为涉及众多利益相关者的公共</span><span style="line-height: 1.6; box-sizing: border-box;">政策，根据其编制主体和利益诉求的不</span><span style="line-height: 1.6; box-sizing: border-box;">同，呈现出多样化的目标和策略。总</span><span style="line-height: 1.6; box-sizing: border-box;">体来看，我国现有空间规划权力冲突主</span><span style="line-height: 1.6; box-sizing: border-box;">要包含部门间的水平冲突和不同层级政</span><span style="line-height: 1.6; box-sizing: border-box;">府间的垂直冲突两种类型。</span></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section class="" style="width: 1.5em; height: 1.5em; border: 1px solid rgb(21, 149, 121); margin: auto; display: inline-block; vertical-align: middle; border-radius: 100%; font-weight: 500; text-align: center; font-size: 16px; line-height: 1.5em; box-sizing: border-box; background-color: rgb(71, 193, 168);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">2</strong></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section class="" style="font-size: 16px; color: rgb(39, 8, 8); box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">存量土地的激活与再利用问题突出</strong></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="display: inline-block; width: 100%; border: 2px dashed rgb(192, 200, 209); padding: 10px; box-sizing: border-box; background-color: rgb(239, 239, 239);"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">随着我国城镇化进程步入中后<span style="line-height: 1.6; box-sizing: border-box;">期，城市发展面临的土地供需矛盾和环境</span><span style="line-height: 1.6; box-sizing: border-box;">约束日渐突出。在此背景下，大量</span><span style="line-height: 1.6; box-sizing: border-box;">闲置消耗与低效利用的土地再利用问题</span><span style="line-height: 1.6; box-sizing: border-box;">成为城市转型发展面临的关键问题。</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">此外，土地利用功能</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">转换的制度瓶颈也是制约工业园区存量</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">用地更新的一大难题。随着开发区迈入“第</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">三次创业”，大量废弃的棕地和工业用地</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">急需转化为非工业用途，但由于土地使用</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">者不愿放弃对现有土地的使用权，出现了</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">大量不符合规划用途的违法用地。在当前</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">政策框架下，政府及工业园区管理机构既</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">无法强制其转让土地，也难以做出违反市</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">场规律的土地强制转换“裁决”，由此陷</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">入了存量土地再利用的制度“悖论”。</span></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section class="" style="width: 1.5em; height: 1.5em; border: 1px solid rgb(21, 149, 121); margin: auto; display: inline-block; vertical-align: middle; border-radius: 100%; font-weight: 500; text-align: center; font-size: 16px; line-height: 1.5em; box-sizing: border-box; background-color: rgb(71, 193, 168);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">3</strong></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section class="" style="font-size: 16px; color: rgb(39, 8, 8); box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">传统规划难以应对新问题</strong></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="display: inline-block; width: 100%; border: 2px dashed rgb(192, 200, 209); padding: 10px; box-sizing: border-box; background-color: rgb(239, 239, 239);"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">随着社会<span style="line-height: 1.6; box-sizing: border-box;">经济发展迈入新阶段，城市功能和人口</span><span style="line-height: 1.6; box-sizing: border-box;">构成日趋复杂，各类新问题层出不穷，</span><span style="line-height: 1.6; box-sizing: border-box;">城市规划开始需要为具体问题的解决提</span><span style="line-height: 1.6; box-sizing: border-box;">供一个有效方法。此时，目标导向的规</span><span style="line-height: 1.6; box-sizing: border-box;">划模式在解决实际问题上的缺陷暴露无</span><span style="line-height: 1.6; box-sizing: border-box;">疑：一是“模块化”的规划框架缺乏针</span><span style="line-height: 1.6; box-sizing: border-box;">对具体问题的深刻挖掘，规划通常按照</span><span style="line-height: 1.6; box-sizing: border-box;">国家标准进行编制，而欠缺对“问题导向”</span><span style="line-height: 1.6; box-sizing: border-box;">的重视，具体表现为基础资料调研的“广</span><span style="line-height: 1.6; box-sizing: border-box;">而不深”，缺乏对于城市发展关键或紧</span><span style="line-height: 1.6; box-sizing: border-box;">迫问题的把握和解决；二是忽视对规划</span><span style="line-height: 1.6; box-sizing: border-box;">实施中继发问题的研究和解决，尽管我</span><span style="line-height: 1.6; box-sizing: border-box;">国有着较为完善的规划编制和管理体系，</span><span style="line-height: 1.6; box-sizing: border-box;">但是由于城市发展过于迅速，出现了计</span><span style="line-height: 1.6; box-sizing: border-box;">划赶不上变化的现象，往往规划还未实</span><span style="line-height: 1.6; box-sizing: border-box;">施，新的问题随即接踵而至，因此规划</span><span style="line-height: 1.6; box-sizing: border-box;">应对新问题的能力亟待提升。</span></section></section></section></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 1em 0px; text-align: center;  box-sizing: border-box; "><section class="" style="margin: 0px 0px -1.85em; box-sizing: border-box;"><section style="height: 0.3em; margin-top: 0.3em; box-sizing: border-box; background-color: rgba(209, 197, 195, 0.933333);"></section><section style="height: 0.3em; margin-top: 0.3em; box-sizing: border-box; background-color: rgba(209, 197, 195, 0.933333);"></section><section style="height: 0.3em; margin-top: 0.3em; box-sizing: border-box; background-color: rgba(209, 197, 195, 0.933333);"></section></section><section class="" style="display: inline-block; vertical-align: bottom; line-height: 2.3em; color: rgb(255, 255, 255); padding-left: 15px; padding-right: 15px; min-height: 2.3em !important; box-sizing: border-box; background-color: rgb(71, 193, 168);"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">“十三五”时期城市规划的主要</strong><strong style="line-height: 2.3; box-sizing: border-box;">新方向</strong></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px; white-space: nowrap; overflow: hidden;  box-sizing: border-box; "><section class="" style="padding: 0px 0.3em; display: inline-block; vertical-align: top; border-top-width: 1px; border-top-style: solid; border-color: rgb(21, 149, 121); border-bottom-width: 1px; border-bottom-style: solid; border-right-width: 1px; border-right-style: solid; text-align: center; font-size: 16px; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">01</strong></section></section><section class="" style="padding: 0px 0.3em; display: inline-block; vertical-align: top; margin-left: -1px; border-top-width: 1px; border-top-style: solid; border-color: rgb(71, 193, 168); border-bottom-width: 1px; border-bottom-style: solid; border-left-width: 1px; border-left-style: solid; text-align: center; font-size: 16px; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">制度和政策创新将引领规划革新</strong></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; padding-left: 0.45em;  box-sizing: border-box; "><section class="" style="border-left-width: 2px; border-left-style: dashed; border-left-color: rgb(21, 149, 121); padding: 5px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">国家为推<span style="line-height: 1.6; box-sizing: border-box;">进城乡发展提出了新型城镇化、“三块</span><span style="line-height: 1.6; box-sizing: border-box;">地”土地改革和“多规合一”等一系列</span><span style="line-height: 1.6; box-sizing: border-box;">政策探索，势必会引发城市规划的理论</span><span style="line-height: 1.6; box-sizing: border-box;">与实践革新。</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">在规划体系改革中，要</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">在保障规划法定效力和严肃性的前提下，</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">增强规划应对市场和社会需求的能力及</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">弹性。这需要进一步创新规划编制，完</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">善规划用地指标调整；进一步创新规划</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">的公众参与和咨询制度，促进规划向协</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">商式规划发展。同时，针对土地、户籍</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">和多规融合等政策创新，也要与时俱进</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">地推动规划编制、管理和实施的改革，</span><span style="text-indent: 2em; line-height: 1.6; box-sizing: border-box;">建设适应新制度环境的政策体系。</span></section></section></section></section></section><section class="" style="width: 0px; margin-left: -0.45em; border-top-width: 1em; border-top-style: solid; border-top-color: rgb(21, 149, 121); border-left-width: 0.5em !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 0.5em !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px; white-space: nowrap; overflow: hidden;  box-sizing: border-box; "><section class="" style="padding: 0px 0.3em; display: inline-block; vertical-align: top; border-top-width: 1px; border-top-style: solid; border-color: rgb(21, 149, 121); border-bottom-width: 1px; border-bottom-style: solid; border-right-width: 1px; border-right-style: solid; text-align: center; font-size: 16px; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">02</strong></section></section><section class="" style="padding: 0px 0.3em; display: inline-block; vertical-align: top; margin-left: -1px; border-top-width: 1px; border-top-style: solid; border-color: rgb(71, 193, 168); border-bottom-width: 1px; border-bottom-style: solid; border-left-width: 1px; border-left-style: solid; text-align: center; font-size: 16px; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">城市缩减和存量规划是转型调整期的重要抓手</strong></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; padding-left: 0.45em;  box-sizing: border-box; "><section class="" style="border-left-width: 2px; border-left-style: dashed; border-left-color: rgb(21, 149, 121); padding: 5px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">我国需要接受城市缩减的现实，改<span style="line-height: 1.6; box-sizing: border-box;">变传统以增长主义为导向的城市规划思</span><span style="line-height: 1.6; box-sizing: border-box;">维，借鉴西方国家精明收缩(Smart Decline)</span><span style="line-height: 1.6; box-sizing: border-box;">、缩减的规划(Planning for Less)</span><span style="line-height: 1.6; box-sizing: border-box;">等新理念。针对我国现有存量土地在</span><span style="line-height: 1.6; box-sizing: border-box;">激活与再利用过程中存在的突出问题，</span><span style="line-height: 1.6; box-sizing: border-box;">笔者提出以下建议：</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">首先，应加快存量用地的全面普查</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">工作。在对现有城市建设用地和工业园</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">区规划控制面积、批而未供土地及闲置</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">土地的面积、数量和用途等进行摸查的</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">基础上，根据老城区与工业园区存量用</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">地的分布及利用特点进行分类筛查，为</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">再利用规划提供坚实基础。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">其次，应厘</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">清存量用地，盘活再利用中的产权纠纷</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">机制。对于工业园区等产权状况较为明</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">确的存量用地，应加快推进其收储工作，</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">鼓励采取土地使用人联合开发公司或股</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">份公司等方式收购土地，促进原有用地</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">功能属性和建筑风貌的提升。而对于</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">城中村、老工业厂区等产权状况较为复</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">杂的用地，宜采取政策引导和制度框定</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">并行的方式，营造社会力量和市场力量</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">多方参与的城市更新政策环境。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">最后，</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">以存量规划为契机建设生态开敞空间。</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">可以借鉴德国“收缩城市”的经验，对</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">土地无法再利用的地块进行重新整理，</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">将其改造成为生态用地，改善城市宜居</span><span style="line-height: 1.6; text-indent: 0px; box-sizing: border-box;">环境。</span></section></section></section></section></section><section class="" style="width: 0px; margin-left: -0.45em; border-top-width: 1em; border-top-style: solid; border-top-color: rgb(21, 149, 121); border-left-width: 0.5em !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 0.5em !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px; white-space: nowrap; overflow: hidden;  box-sizing: border-box; "><section class="" style="padding: 0px 0.3em; display: inline-block; vertical-align: top; border-top-width: 1px; border-top-style: solid; border-color: rgb(21, 149, 121); border-bottom-width: 1px; border-bottom-style: solid; border-right-width: 1px; border-right-style: solid; text-align: center; font-size: 16px; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">03</strong></section></section><section class="" style="padding: 0px 0.3em; display: inline-block; vertical-align: top; margin-left: -1px; border-top-width: 1px; border-top-style: solid; border-color: rgb(71, 193, 168); border-bottom-width: 1px; border-bottom-style: solid; border-left-width: 1px; border-left-style: solid; text-align: center; font-size: 16px; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">面向问题的提升型规划地位凸显</strong></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; padding-left: 0.45em;  box-sizing: border-box; "><section class="" style="border-left-width: 2px; border-left-style: dashed; border-left-color: rgb(21, 149, 121); padding: 5px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">结合当前规划在解决实际问<span style="line-height: 1.6; box-sizing: border-box;">题中表现出的不足，通过提取“面向问</span><span style="line-height: 1.6; box-sizing: border-box;">题”的提升型规划的阶段特征及优势，</span><span style="line-height: 1.6; box-sizing: border-box;">从三方面提出促进规划转型创新的建议：</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.6; box-sizing: border-box;">首先，在基础资料调研阶段，应秉持“问</span><span style="line-height: 1.6; box-sizing: border-box;">题导向”的规划原则。虽然基础资料调</span><span style="line-height: 1.6; box-sizing: border-box;">研是规划工作的重要环节和规划师工作</span><span style="line-height: 1.6; box-sizing: border-box;">的基础，但是往往规划师对新问题缺乏</span><span style="line-height: 1.6; box-sizing: border-box;">敏感性，把握能力有待提高。建议在规</span><span style="line-height: 1.6; box-sizing: border-box;">划教育和再培训中，培养和强化对实际</span><span style="line-height: 1.6; box-sizing: border-box;">问题的调查分析能力。同时，也应该</span><span style="line-height: 1.6; box-sizing: border-box;">加强对规划师公共政策研究和制定能力</span><span style="line-height: 1.6; box-sizing: border-box;">的培训，提高规划的可操作性和政策效</span><span style="line-height: 1.6; box-sizing: border-box;">力。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.6; box-sizing: border-box;">其次，在方案编制阶段，应对“模块化”</span><span style="line-height: 1.6; box-sizing: border-box;">和“蓝图式”的设计方式进行反思。建</span><span style="line-height: 1.6; box-sizing: border-box;">议可以借鉴杭州经验，在规划编制阶段</span><span style="line-height: 1.6; box-sizing: border-box;">规范化和程序化规划主管部门及规划编</span><span style="line-height: 1.6; box-sizing: border-box;">制部门的沟通机制，以问题为导向不断</span><span style="line-height: 1.6; box-sizing: border-box;">校准和明确规划目标，提高规划针对性。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.6; box-sizing: border-box;">最后，建立和完善动态的规划实施与评</span><span style="line-height: 1.6; box-sizing: border-box;">估体系。建议以两年为一周期对规划实</span><span style="line-height: 1.6; box-sizing: border-box;">施进行滚动式检讨，以增强规划应对新</span><span style="line-height: 1.6; box-sizing: border-box;">问题的能力以及校准规划方向和目标。</span></section></section></section></section></section><section class="" style="width: 0px; margin-left: -0.45em; border-top-width: 1em; border-top-style: solid; border-top-color: rgb(21, 149, 121); border-left-width: 0.5em !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 0.5em !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px; text-align: center;  box-sizing: border-box; "><section class="" style="width: 2em; text-align: left; float: left; margin: 2px; box-sizing: border-box;"><section style="width: 0px; display: inline-block; vertical-align: top; border-left-width: 1.2em; border-left-style: solid; border-left-color: rgb(123, 208, 149); border-top-width: 1.2em; border-top-style: solid; border-top-color: rgb(123, 208, 149); border-right-width: 1.2em !important; border-right-style: solid !important; border-right-color: transparent !important; border-bottom-width: 1.2em !important; border-bottom-style: solid !important; border-bottom-color: transparent !important; box-sizing: border-box;"></section><section class="" style="width: 1.6em; height: 2em; line-height: 1.9em; overflow: hidden; white-space: nowrap; margin: -2.5em 0px 0px; text-align: center; color: white; box-sizing: border-box;"><section style="box-sizing: border-box;">※</section></section></section><section class="" style="border: 2px solid rgb(21, 149, 121); 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