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<section style="box-sizing: border-box;font-style: normal;font-weight: 400;text-align: justify;font-size: 16px;"><section style="margin-top: 10px;margin-bottom: 10px;overflow: hidden;font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;text-align: left;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: 4em;height: 4em;border-radius: 50%;background-position: center center;background-repeat: no-repeat;background-size: cover;background-image: url("http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mgrWpmGjF9YpCjMMU2L6zcpWhFALSy2rf2XgCdsZy5yXYMhxBqcN1zWnZzELDoZz1b587gqKAakxA/640?wx_fmt=png");overflow: hidden;box-sizing: border-box;"><section style="height: 100%;overflow: hidden;line-height: 0;vertical-align: middle;max-width: 100%;box-sizing: border-box;"> <img data-ratio="0.9409091" data-w="220" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mgrWpmGjF9YpCjMMU2L6zcpWhFALSy2rf2XgCdsZy5yXYMhxBqcN1zWnZzELDoZz1b587gqKAakxA/640?wx_fmt=png" style="width: 100%;height: 100%;opacity: 0;box-sizing: border-box;" width="100%" data-type="png"  /></section></section><section style="width: 100%;margin-left: 1.2em;margin-top: -1.2em;box-sizing: border-box;"><section style="float: left;white-space: nowrap;overflow: hidden;display: inline-block;vertical-align: middle;height: 2em;margin-left: 1em;border-bottom-left-radius: 1em;border-left: 1px solid rgb(156, 94, 21);border-bottom: 1px solid rgb(156, 94, 21);max-width: 85% !important;box-sizing: border-box;"><section style="margin-left: 1.5em;line-height: 1.5;padding-right: 0.5em;font-size: 11px;color: rgb(56, 30, 5);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">点击蓝字关注公众号</p></section></section><section style="float: left;width: 5%;margin-left: -1px;box-sizing: border-box;"><section style="width: 6px;height: 6px;margin-top: 1.82em;border-radius: 100%;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"></section></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(156, 94, 21);padding: 10px;box-sizing: border-box;"><section style="color: rgb(56, 30, 5);letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">作者湖南师范大学资源与环境科学学院、地理空间大数据挖掘与应用湖南省重点实验室黄军林，华中科技大学建筑与城市规划学院教授、博士生导师、城乡规划政策研究中心主任陈锦富，湖南思达源规划咨询研究有限公司陈健<span style="text-indent: 2em;box-sizing: border-box;">在《规划师》2020年第4期撰文，</span>党的十九大将“坚持全面依法治国”作为新时代坚持和发展中国特色社会主义的基本方略之一，“法治”将在“国家治理”时期发挥更加基础性的作用。城市规划本质上作为政府在空间治理领域公权对私权的一种基本干预工具，推进法治化尤为重要。近年来，随着制度完善及公民私权保护意识的强化，城市规划的目的、内容、程序的正当性和合法性问题引起了广泛关注。凤凰山庄拆迁讼案件源于长沙市政府对风景区改造过程中的房屋征收，由此衍生出一例私权与公权博弈的典型事件。在“国家治理”背景下，通过剖析案件的缘起与法理，引发了面向“法治”、“精治”与“共治”能力的延伸思考，并就治理制度完善、规划编制方法和规划实施方式变革展开了讨论。</p></section><section style="margin-top: 10px;margin-bottom: 10px;font-size: 13px;box-sizing: border-box;" powered-by="gulangu"><section style="width: 100%;height: 5px;background: -webkit-linear-gradient(left, rgb(156, 94, 21), rgba(255, 247, 234, 0)) white;box-sizing: border-box;line-height: 0;"></section></section><section style="font-size: 12px;letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 关键词 ]规划实施；凤凰山庄；拆迁；程序正义；法治</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 文章编号 ]1006-0022(2020)04-0035-06</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 中图分类号 ]TU984　</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 文献标识码 ]B </p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 引文格式 ]黄军林，陈锦富，陈健．因“制”而“治”：城市规划实施中的“程序正义”——基于凤凰山庄征收事件的讨论[J]．规划师，2020(4)：35-40．</p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/OLsnsncVOOzwTgC7IHDvTeXlXdl2SaGZ7RvvUMSGdAbehlnNhP6XBtL5Z3sqyrw5l85MDibicxPGX2wyUUPsP63Q/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">一</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">案例简介</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(132, 81, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">凤凰山庄是位于湖南大学和湖南<span style="box-sizing: border-box;">师范大学之间的一条著名的商业街——</span><span style="box-sizing: border-box;">多乐街①内的2 栋5 层住宅。2000年7</span><span style="box-sizing: border-box;">月，长沙市食品公司某购销站将红线范围</span><span style="box-sizing: border-box;">1745.37m2的土地使用权转让给长沙</span><span style="box-sizing: border-box;">市某房地产开发有限公司，取得了规划</span><span style="box-sizing: border-box;">许可证，并于同年建成了凤凰山庄，共</span><span style="box-sizing: border-box;">有35户业主(业主大部分为上述两所高</span><span style="text-indent: 2em;box-sizing: border-box;">校的教师，其中还有法律专业的教授)。</span><span style="text-indent: 2em;box-sizing: border-box;">2004年，长沙市政府编制了《岳麓山风</span><span style="text-indent: 2em;box-sizing: border-box;">景名胜区总体规划(2003—2020)》(以下</span><span style="text-indent: 2em;box-sizing: border-box;">简称《总体规划》)，并于2005年9 月</span><span style="text-indent: 2em;box-sizing: border-box;">30日获得了住建部批复，规划要求“天</span><span style="text-indent: 2em;box-sizing: border-box;">马景区内的常住居民外迁，拆除现有房</span><span style="text-indent: 2em;box-sizing: border-box;">屋，恢复成为风景绿地。”2006年，</span><span style="text-indent: 2em;box-sizing: border-box;">长沙市政府启动了《天马山景区详细规</span><span style="text-indent: 2em;box-sizing: border-box;">划》编制工作，后按照城市发展条件的</span><span style="text-indent: 2em;box-sizing: border-box;">变化进行了修改，并于2009年2月25</span><span style="text-indent: 2em;box-sizing: border-box;">日进行了《天马山景区详细规划》初步</span><span style="text-indent: 2em;box-sizing: border-box;">方案公示，后又对方案进行了深化、整</span><span style="text-indent: 2em;box-sizing: border-box;">合，形成了《岳麓山风景名胜区天马景</span><span style="text-indent: 2em;box-sizing: border-box;">区综合整治规划》( 以下简称《整治规</span><span style="text-indent: 2em;box-sizing: border-box;">划》) (图1～图5)，并再次进行了公示。</span><span style="text-indent: 2em;box-sizing: border-box;">《整治规划》对《总体规划》进行了适</span><span style="text-indent: 2em;box-sizing: border-box;">当调整：“考虑到大学城是景区的一部分，</span><span style="text-indent: 2em;box-sizing: border-box;">因此增加为大学生服务的功能，既解决</span><span style="text-indent: 2em;box-sizing: border-box;">大学生的生活服务问题，也是主题文化</span><span style="text-indent: 2em;box-sizing: border-box;">体验游览的内容”，在景区内设置了“大</span><span style="text-indent: 2em;box-sizing: border-box;">学生文化展示服务区”，“凤凰山下的‘多</span><span style="text-indent: 2em;box-sizing: border-box;">乐街’则拆除，为大学生创造一个文化街，</span><span style="text-indent: 2em;box-sizing: border-box;">分为‘上街’和‘下街’”，规划总建</span><span style="text-indent: 2em;box-sizing: border-box;">筑面积为3.2 万平方米。2010年4月，</span><span style="text-indent: 2em;box-sizing: border-box;">湖南省住建厅批复了《整治规划》。</span></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.9375" data-w="768" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhIXQibp7ibeOnERsQbH1VkiaxWLmacUTT6PfT7aL3CeFgkEVqHj8WibrTicicAXKzia6NmXHxa4QjY8KvsA/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.4401544" data-w="777" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhIXQibp7ibeOnERsQbH1Vkiax9MSJXwqAkwHlRsqoFmpaEHZ8uo5v9NUkGCVE0GiaYXAMegiaHefyib9qA/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.6752941" data-w="425" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhIXQibp7ibeOnERsQbH1VkiaxIr7maibjhy5MgUZCUe3PLklguneHIwNsUp5uySB4rSBf2AnJybGp31g/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.6643026" data-w="423" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhIXQibp7ibeOnERsQbH1VkiaxdTsrREot1YXmH6W96eX3tJ07Te4hMQOUxgs0JBhFZmkaGpWWYZm4XQ/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.9017857" data-w="336" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhIXQibp7ibeOnERsQbH1VkiaxQqIWJyPZiabSjU7RC8ImicdMW96p3HnVibEKvdT2tdiczI3iaLHrCWC3bIg/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">《整治规划》公布之后，激起了凤<span style="box-sizing: border-box;">凰山庄业主的强烈反应。业主们两次致</span><span style="box-sizing: border-box;">信市政府，要求保留凤凰山庄。业主们</span><span style="box-sizing: border-box;">认为“小区建筑合法”“拆除重建浪费”“建</span><span style="box-sizing: border-box;">筑无碍景观”“保留山庄合情合理合法”，</span><span style="box-sizing: border-box;">指出“不应是拆除重建以赢利为目的的</span><span style="box-sizing: border-box;">大学生生活服务设施”，并对拟建项目</span><span style="box-sizing: border-box;">的公共利益属性提出质疑。而规划局则</span><span style="box-sizing: border-box;">认为“景区综合整治规划按照上位规划</span><span style="box-sizing: border-box;">的要求，提出拆迁该小区，从规划编制</span><span style="box-sizing: border-box;">上是合法的”“规划的大学生生活服务</span><span style="box-sizing: border-box;">区并非传统意义上的商业街，其目的是</span><span style="box-sizing: border-box;">为大学生提供必要的配套服务，包括学</span><span style="box-sizing: border-box;">生学习交流等场所，符合打造大学生家</span><span style="box-sizing: border-box;">园的定位，与‘核心景区内严禁建设与</span><span style="box-sizing: border-box;">景区保护无关的任何工程’”并不相悖，</span><span style="box-sizing: border-box;">维持原规划。第一回合的博弈，政府因</span><span style="box-sizing: border-box;">掌握对公共利益的解释权，致公权获胜，</span><span style="box-sizing: border-box;">但事情并没有就此画上句号。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">2009年2月2日，长沙市政府发布《关<span style="box-sizing: border-box;">于收回长沙市岳麓区湖南大学湖南师范</span><span style="box-sizing: border-box;">大学等单位国有土地使用权的决定》( 以</span><span style="box-sizing: border-box;">下简称“土地收回令”) (依《总体规划》</span><span style="box-sizing: border-box;">实施征收)，收回湖南大学等43家单位</span><span style="box-sizing: border-box;">共计36560.41m2的国有土地使用权，</span><span style="box-sizing: border-box;">2009年5月6日取得“拆迁许可证”，</span><span style="box-sizing: border-box;">并启动了拆迁工作。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">拆迁过程中，具有法律知识的业主<span style="box-sizing: border-box;">们发现了政府行政行为存在程序违法，</span><span style="box-sizing: border-box;">他们认为虽然政府通过报纸、公布栏等</span><span style="box-sizing: border-box;">形式对“土地收回令”进行了公告，但</span><span style="box-sizing: border-box;">是却未送达至国有土地使用权人手中，</span><span style="box-sizing: border-box;">并以此向长沙市中级人民法院提起了诉</span><span style="box-sizing: border-box;">讼，最终胜诉。第二轮博弈，程序正义</span><span style="box-sizing: border-box;">致私权获胜，开创了国内“被拆迁户”</span><span style="box-sizing: border-box;">告赢政府的先例，同时也给政府土地征</span><span style="box-sizing: border-box;">收、拆迁和规划实施等行政行为的合法</span><span style="box-sizing: border-box;">性敲响了一记警钟。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/OLsnsncVOOzwTgC7IHDvTeXlXdl2SaGZ7RvvUMSGdAbehlnNhP6XBtL5Z3sqyrw5l85MDibicxPGX2wyUUPsP63Q/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">二</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">争议的焦点：“土地收回令”的</strong><strong style="box-sizing: border-box;">“程序正当”与规划蓝图实施的</strong><strong style="box-sizing: border-box;">“正当性”之争</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(132, 81, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">在该案中，凤凰山庄业主与长沙市<span style="box-sizing: border-box;">政府间博弈的焦点在于“土地收回令”</span><span style="box-sizing: border-box;">的行政行为是否存在程序违法。业主们</span><span style="box-sizing: border-box;">认为这份“土地收回令”存在法律漏洞：</span><span style="box-sizing: border-box;">首先，“土地收回令”中只列举了两家</span><span style="box-sizing: border-box;">单位名称，其他单位名称未做明确说明，</span><span style="box-sizing: border-box;">且“土地收回令”公布的“以×× 号与</span><span style="box-sizing: border-box;">×× 号地籍测绘成果为准”，但未公布</span><span style="box-sizing: border-box;">该成果，无法查证；其次，业主们认为</span><span style="box-sizing: border-box;">政府未按规定“提前6个月进行公告”</span><span style="box-sizing: border-box;">和通知业主，以及未组织有业主参加的</span><span style="box-sizing: border-box;">论证和听证会，且强调这份“土地收</span><span style="box-sizing: border-box;">回令”没有“依法送达”业主手中。</span><span style="box-sizing: border-box;">因此，业主们认为政府的行政行为存在程</span><span style="box-sizing: border-box;">序违法。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">长沙市政府则认为：2009年2月2<span style="box-sizing: border-box;">日，市政府发布了“土地收回令”，并</span><span style="box-sizing: border-box;">在长沙晚报2月6日A9版进行了公告，</span><span style="box-sizing: border-box;">已完成送达程序；再者，从政府的角度，</span><span style="box-sizing: border-box;">该“土地收回令”的发布是依照《总体</span><span style="box-sizing: border-box;">规划》的要求，更是为了改善与更好保</span><span style="box-sizing: border-box;">护岳麓山生态环境、提升居住生活品质，</span><span style="box-sizing: border-box;">实现“共同利益最大化”，故认为“土</span><span style="box-sizing: border-box;">地收回令”符合法律规定。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">长沙市中级人民法院认为，凤凰山<span style="box-sizing: border-box;">庄的产权已经分户登记至35 户业主名下，</span><span style="box-sizing: border-box;">“35 户业主”就是该“土地收回令”的</span><span style="box-sizing: border-box;">行政相对人。而市政府未将“土地收回</span><span style="box-sizing: border-box;">令”直接送达给业主，因此“土地收回令”</span><span style="box-sizing: border-box;">对凤凰山庄业主不具法律约束力，尽管</span><span style="box-sizing: border-box;">被告长沙市政府称发起收回国有土地使</span><span style="box-sizing: border-box;">用权的目的是为实现“共同利益最大化”，</span><span style="box-sizing: border-box;">但这无法举证被告履行了“依法送达”</span><span style="box-sizing: border-box;">程序。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">2010年3月17日，长沙市中级人<span style="box-sizing: border-box;">民法院下达行政判决书：确认长沙市政</span><span style="box-sizing: border-box;">府“土地收回令”中涉及收回凤凰山庄</span><span style="box-sizing: border-box;">27户居民国有土地使用权的部分无效。</span><span style="box-sizing: border-box;">一审判决后，各方当事人均未上诉，凤</span><span style="box-sizing: border-box;">凰山庄业主赢得了诉讼。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/OLsnsncVOOzwTgC7IHDvTeXlXdl2SaGZ7RvvUMSGdAbehlnNhP6XBtL5Z3sqyrw5l85MDibicxPGX2wyUUPsP63Q/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">三</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">胜诉背后的“法理”:“制度”</strong><strong style="box-sizing: border-box;">成为利益博弈中的“裁判”</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(132, 81, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">分析案件发生及其审理过程不难发<span style="box-sizing: border-box;">现，该案之所以能够在湖南省胜诉其实</span><span style="box-sizing: border-box;">早有伏笔。2008年4月17日，时任湖</span><span style="box-sizing: border-box;">南省省长周强签署政府令，颁布了中国</span><span style="box-sizing: border-box;">第一个地方性行政程序规定——《湖南</span><span style="box-sizing: border-box;">省行政程序规定》( 以下简称《规定》)，</span><span style="box-sizing: border-box;">并于同年10月1日正式实施。法学界其</span><span style="box-sizing: border-box;">实早在1986年就提出了关于出台《行政</span><span style="box-sizing: border-box;">程序法》的提议，虽然过了20多年，却</span><span style="box-sizing: border-box;">迟迟未出台，其背后乃是“权力”与“权利”</span><span style="box-sizing: border-box;">的较量，更是“无限政府”与“有限政府”</span><span style="box-sizing: border-box;">思维的博弈，这场博弈在湖南省率先“破</span><span style="box-sizing: border-box;">冰”。《规定》对行政主体及决策、执</span><span style="box-sizing: border-box;">法和特别行为等程序进行了规定，《规定》</span><span style="box-sizing: border-box;">的出台成为人民监督政府、维护自身权</span><span style="box-sizing: border-box;">利的法律“利器”。分析长沙市中级人</span><span style="box-sizing: border-box;">民法院对凤凰山庄的判决书，影响判决</span><span style="box-sizing: border-box;">结果的唯一事实依据就是政府行政行为</span><span style="box-sizing: border-box;">违反了“正当程序”。可见由该案所诠</span><span style="box-sizing: border-box;">释的法律道理具有“程序正义”的意义，</span><span style="box-sizing: border-box;">迫使政府行政行为成为更加规范的程序</span><span style="box-sizing: border-box;">性活动，更成为影响该案判定结果的关</span><span style="box-sizing: border-box;">键依据。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">该案也因其特殊的意义被评为2010<span style="box-sizing: border-box;">年度湖南省最具影响力法治事件，评语</span><span style="box-sizing: border-box;">写道：该案系当今社会热点关注“拆迁”</span><span style="box-sizing: border-box;">活动过程中发生的一起彰显公民依法维</span><span style="box-sizing: border-box;">权、司法独立审判的典型案例。长沙市</span><span style="box-sizing: border-box;">政府在一审判决之后，能够尊重审判结</span><span style="box-sizing: border-box;">果，停止违法行政，体现了维护法律权</span><span style="box-sizing: border-box;">威、建设现代法治政府的决心和姿态。</span><span style="box-sizing: border-box;">有学者则如是评价该案的双方—“输得</span><span style="box-sizing: border-box;">伟大，赢得光荣”。随后，湖南省围绕</span><span style="box-sizing: border-box;">政府依法行政陆续出台了一系列制度性文</span><span style="box-sizing: border-box;">件(表1)，通过法治基础环境的营造，让</span><span style="box-sizing: border-box;">公民学会了通过“行政程序规定”维权，</span><span style="box-sizing: border-box;">政府学会了坦然站上被告席。法谚有云：</span><span style="box-sizing: border-box;">“程序是法治和恣意而治的分水岭”，“推</span><span style="box-sizing: border-box;">进依法行政、建设法治政府，要求政府</span><span style="box-sizing: border-box;">全面正确地履行职责，政府要‘正确地</span><span style="box-sizing: border-box;">做事’和‘做正确的事’。”</span></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.7289003" data-w="782" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhIXQibp7ibeOnERsQbH1Vkiaxq1uBTagFfBSeCZicPtU49Wsq03RoDNjpicNaItZqXyPFrMYTZa8OJjZg/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">在该案中，业主们通过法律手段与<span style="box-sizing: border-box;">政府进行博弈，拥有法律知识和实践经</span><span style="box-sizing: border-box;">验的业主们紧紧抓住政府在规划实施过</span><span style="box-sizing: border-box;">程中的程序违法事实而胜诉。这一“民</span><span style="box-sizing: border-box;">告官案”的胜诉，无疑意味着城市规划</span><span style="box-sizing: border-box;">实施法治化的一大进步，是依法实施规</span><span style="box-sizing: border-box;">划的典型案例。该案告诫政府及规划师</span><span style="box-sizing: border-box;">们：在规划实施过程中，权力必须通过</span><span style="box-sizing: border-box;">合法的程序才能行使，行政行为符合行</span><span style="box-sizing: border-box;">政程序规定是行政行为产生法律效力的</span><span style="box-sizing: border-box;">必要条件，如果程序违法，也将导致行</span><span style="box-sizing: border-box;">政行为无效。当前，中国正处在转型发</span><span style="box-sizing: border-box;">展的关键时期，各项改革正在深入推进，</span><span style="box-sizing: border-box;">政府公共治理范式也将随改革的推进而</span><span style="box-sizing: border-box;">发生变化，城市规划作为政府在空间治</span><span style="box-sizing: border-box;">理领域的一项重要工具，在“推进国家</span><span style="box-sizing: border-box;">治理体系和治理能力现代化”的总体目</span><span style="box-sizing: border-box;">标要求下，也必然会迎来一场全面而深</span><span style="box-sizing: border-box;">刻的变革。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/OLsnsncVOOzwTgC7IHDvTeXlXdl2SaGZ7RvvUMSGdAbehlnNhP6XBtL5Z3sqyrw5l85MDibicxPGX2wyUUPsP63Q/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;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;">延伸思考</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(132, 81, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">该案源自两栋5层居民楼的征收，<span style="box-sizing: border-box;">从《整治规划》的“蓝图”实施来看，</span><span style="box-sizing: border-box;">因未能完全落地而留有遗憾，但将其置</span><span style="box-sizing: border-box;">于治理现代化的宏大背景中对城市规划</span><span style="box-sizing: border-box;">转型有着重要的启发，由此引起了关于</span><span style="box-sizing: border-box;">新时代实现空间治理现代化的延伸思考，</span><span style="box-sizing: border-box;">即面向“法治”、“精治”与“共治”</span><span style="box-sizing: border-box;">的空间治理目标的规划转型策略。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;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;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（一）依“规”法治：建议出台《国家征收法》，完善存量规划的制度环境</p></section></section></section><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">一是源于案例中关于规划征收问题<span style="box-sizing: border-box;">而引起的完善规划治理制度建设的思考。</span><span style="box-sizing: border-box;">当下，城市发展模式正从“外延式扩张”</span><span style="box-sizing: border-box;">转向“内涵式增长”，土地及其附着于</span><span style="box-sizing: border-box;">其上的建筑物的征收不可避免。在征收</span><span style="box-sizing: border-box;">过程中，城市土地所蕴含“公共性”的</span><span style="box-sizing: border-box;">潜在租值成为利益相关主体争取的对象，</span><span style="box-sizing: border-box;">现行征收制度成为权利和权力较量的异</span><span style="box-sizing: border-box;">化工具，对出台相关制度界定“公共利</span><span style="box-sizing: border-box;">益”提出了要求。以城市更新为例，《国</span><span style="box-sizing: border-box;">有土地上房屋征收与补偿条例》第八条</span><span style="box-sizing: border-box;">将其明确定位为“公共利益”需要，但“公</span><span style="box-sizing: border-box;">共利益”之需是否一定就是“真公益”？</span><span style="box-sizing: border-box;">在现实中未必是。凤凰山庄的改造是否</span><span style="box-sizing: border-box;">全为“公利”及为何“公利”，恐怕很</span><span style="box-sizing: border-box;">难说清。诚然城市更新改造的成功能够</span><span style="box-sizing: border-box;">对当地的生态与生活环境产生积极影响，</span><span style="box-sizing: border-box;">但是当下地方政府对“更新与棚改”的</span><span style="box-sizing: border-box;">热情，恐怕不能简单以“民生改善”来</span><span style="box-sizing: border-box;">阐释，隐于表象下的“财政利益之私”</span><span style="box-sizing: border-box;">也许才是动力的真正来源。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">另外，梳理当前法律体系，《宪法》<span style="box-sizing: border-box;">修正案虽然规定了“国家为了公共利益</span><span style="box-sizing: border-box;">的需要”可以依照法律规定对“公民的</span><span style="box-sizing: border-box;">私有财产实行征收”，但是对于何为“公</span><span style="box-sizing: border-box;">共利益”及征收的法律规定并未做出相</span><span style="box-sizing: border-box;">应制度安排；《城乡规划法》虽然赋予</span><span style="box-sizing: border-box;">了政府开展规划编制与实施的相应权力，</span><span style="box-sizing: border-box;">但是对实施规划中如何调整公权与私权</span><span style="box-sizing: border-box;">的关系，并没有也不可能做出法律安排；</span><span style="box-sizing: border-box;">《物权法》作为私法更没有对国家征收</span><span style="box-sizing: border-box;">行为进行界定；《国有土地上房屋征收</span><span style="box-sizing: border-box;">与补偿条例》虽然强化了被征收人的合</span><span style="box-sizing: border-box;">法权利的保障，但是具体的规制内容仍</span><span style="box-sizing: border-box;">存有漏洞。经过梳理发现，现行法律体</span><span style="box-sizing: border-box;">系基本搭建了基于“国家征收”的法律</span><span style="box-sizing: border-box;">框架，但该框架还远不能解决征收实施</span><span style="box-sizing: border-box;">中出现的诸多法律问题，“权力运行”</span><span style="box-sizing: border-box;">与“权利保障”相协调的法治化要求的</span><span style="box-sizing: border-box;">实现存在制度困境。可见，中国征收之病，</span><span style="box-sizing: border-box;">根源在“制度”，只有经由“制度”之</span><span style="box-sizing: border-box;">针砭而形成“良法”，才是根本的解决</span><span style="box-sizing: border-box;">之道。因此，有必要围绕国家征收的权力、</span><span style="box-sizing: border-box;">机制和程序等做出制度安排，出台一部</span><span style="box-sizing: border-box;">公益征收的基本法—《国家征收法》，</span><span style="box-sizing: border-box;">真正实现征收的公益性，为依法处理国</span><span style="box-sizing: border-box;">家利益、政府利益、公共利益与私权冲</span><span style="box-sizing: border-box;">突奠定制度基础，保障城市规划实施“有</span><span style="box-sizing: border-box;">法可依、有章可循”，同时不断强化规</span><span style="box-sizing: border-box;">划实施中的权益保护、司法救济和正当</span><span style="box-sizing: border-box;">程序等规制内容，更好地处理规划实施</span><span style="box-sizing: border-box;">过程中的多元利益关系，为实现空间治</span><span style="box-sizing: border-box;">理现代化保驾护航。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;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;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（二）善“利”精治：用“政策工具”的方法编制规划</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">第二个延伸思考源于对城市规划本<span style="box-sizing: border-box;">身的分析，《整治规划》因缺少对规划</span><span style="box-sizing: border-box;">实施对象及利益主体的产权研究而最终</span><span style="box-sizing: border-box;">引发了此案。在规划实施过程中，正是</span><span style="box-sizing: border-box;">那些被传统规划所忽视的诉求，往往成</span><span style="box-sizing: border-box;">为规划实施中的最大“绊脚石”，真实</span><span style="box-sizing: border-box;">世界存在的“交易成本”和“合约选择”</span><span style="box-sizing: border-box;">使得城市规划陷入无法实现的困局中。</span><span style="box-sizing: border-box;">只要“蓝图”的实现涉及产权交易，成</span><span style="box-sizing: border-box;">本就不会为零，当交易成本大于“蓝图”</span><span style="box-sizing: border-box;">带来的效益，“蓝图”就不会变成现实。</span><span style="box-sizing: border-box;">因此，除非能够找到更好的方式降低“交</span><span style="box-sizing: border-box;">易费用”以及学会面对与处理“复杂的</span><span style="box-sizing: border-box;">产权问题”，如“如何在规划方案中纳</span><span style="box-sizing: border-box;">入凤凰山庄居民的诉求？”很显然，规</span><span style="box-sizing: border-box;">划师们还没有对“空间资源的使用和收</span><span style="box-sizing: border-box;">益进行分配与协调”这一新的职业要求</span><span style="box-sizing: border-box;">做好充分准备。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">在近代城市规划理论范式里，城市<span style="box-sizing: border-box;">规划具有两种属性：一是技术上“好”</span><span style="box-sizing: border-box;">的“蓝图”，这一点已经被广大规划师</span><span style="box-sizing: border-box;">所驾轻就熟，是无“交易成本”的理想</span><span style="box-sizing: border-box;">假定“技术工具”；二是考虑城市规划</span><span style="box-sizing: border-box;">各主体利益后的“实施方案”，是一种</span><span style="box-sizing: border-box;">基于规划“落地”的“政策工具”。传</span><span style="box-sizing: border-box;">统“技术工具”型规划忽视了多元化价</span><span style="box-sizing: border-box;">值诉求，多种诉求交织在空间载体之上，</span><span style="box-sizing: border-box;">从而使得规划实施过程变得复杂，但“技</span><span style="box-sizing: border-box;">术工具”型规划往往缺乏对空间背后复</span><span style="box-sizing: border-box;">杂权利的分析，规划师们已经养成了在</span><span style="box-sizing: border-box;">“一张白纸”上做规划的习惯，习惯于</span><span style="box-sizing: border-box;">通过规划的“奇思妙想”与“技术设计”</span><span style="box-sizing: border-box;">来抽象利益主体的真实需求和空间发展</span><span style="box-sizing: border-box;">的真实潜力，却无意于投入更多的精力</span><span style="box-sizing: border-box;">对空间的社会属性进行研究，从而导致</span><span style="box-sizing: border-box;">规划的不适应。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">总之，城市规划绝不仅仅是一项技<span style="box-sizing: border-box;">术或科学活动，而是“对社会价值的权</span><span style="box-sizing: border-box;">威性分配、重大公共利益的决策和社会</span><span style="box-sizing: border-box;">重要利益的制度性分配”，是一项对空</span><span style="box-sizing: border-box;">间资源配置及其收益进行分配与协调的</span><span style="box-sizing: border-box;">“政策工具”，是各种“利”的交织，</span><span style="box-sizing: border-box;">因而在规划制定时，需要充分考虑空间</span><span style="box-sizing: border-box;">上多元权利主体的利益与价值，这就要</span><span style="box-sizing: border-box;">求规划师们以“制度经济”的意识和思</span><span style="box-sizing: border-box;">维制定规划，否则规划“蓝图”就无法</span><span style="box-sizing: border-box;">避免陷入实施”走样“的困境。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;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;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（三）用“柔”共治：通过柔性“治理”方式实施规划</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">第三个延伸思考源于对在《整治规<span style="box-sizing: border-box;">划》实施过程中的政府主导的刚性“管制”</span><span style="box-sizing: border-box;">路径的反思。在改革开放初期，政府依</span><span style="box-sizing: border-box;">靠城市规划建立起来的“管制”路径，</span><span style="box-sizing: border-box;">运用国家权力，牢牢掌控城市空间资源</span><span style="box-sizing: border-box;">的配置，通过政策、命令等方法掌握了</span><span style="box-sizing: border-box;">空间资源配置的绝对主动权，这种一元</span><span style="box-sizing: border-box;">化的治理格局混淆了公域和私域的界限，</span><span style="box-sizing: border-box;">模糊了公共空间与私人空间。可以预见，</span><span style="box-sizing: border-box;">在不以“粗放”用地增长为核心的存量</span><span style="box-sizing: border-box;">规划中，传统增量规划中利用非市场手</span><span style="box-sizing: border-box;">段调节实现“共同利益最大化”的简单</span><span style="box-sizing: border-box;">逻辑正在面临诸多挑战。城市规划从“刚</span><span style="box-sizing: border-box;">性”管控走向“柔性”治理是时代趋势。</span><span style="box-sizing: border-box;">存量规划面临与增量规划完全不同的产</span><span style="box-sizing: border-box;">权状态，建设用地使用权分散在多个产</span><span style="box-sizing: border-box;">权主体手中，并已经形成现实的利益格</span><span style="box-sizing: border-box;">局。一方面是在需求与利益多元化的背</span><span style="box-sizing: border-box;">景下，传统政府“包打天下”的管理方</span><span style="box-sizing: border-box;">式无法适应“多中心”格局的社会诉求，</span><span style="box-sizing: border-box;">尤其是弱势群体的需求；另一方面，随</span><span style="box-sizing: border-box;">着市场化改革的深入推进及全球化进程</span><span style="box-sizing: border-box;">加速，资源配置的方式也发生了根本性</span><span style="box-sizing: border-box;">变化，传统“机械管控”与当前市场化</span><span style="box-sizing: border-box;">改革格格不入。凤凰山庄所在的多乐</span><span style="box-sizing: border-box;">街，原本是一条市场自发形成的充满活</span><span style="box-sizing: border-box;">力、内容丰富、承载年轻人记忆的街道，</span><span style="box-sizing: border-box;">假设规划编制时不仅从解决物质和社会</span><span style="box-sizing: border-box;">性表象问题入手，更能探寻其深层结构</span><span style="box-sizing: border-box;">性问题，以持续性、渐进性、开放性的</span><span style="box-sizing: border-box;">动态与有机更新方式进行改造，该街区</span><span style="box-sizing: border-box;">将有可能“蜕变”为一条富于湖湘文化</span><span style="box-sizing: border-box;">特色的街区，但囿于“传统城市更新”</span><span style="box-sizing: border-box;">观念根深蒂固，多乐街仍难逃被拆除的</span><span style="box-sizing: border-box;">命运，而这一决策结果在多大程度上考</span><span style="box-sizing: border-box;">量到各利益主体的需求主张？如何在各</span><span style="box-sizing: border-box;">个权利主体之间寻求共同的需求主张，</span><span style="box-sizing: border-box;">又体现各自的利益诉求，形成共治路径，</span><span style="box-sizing: border-box;">是迈向“治理”的城市规划领域值得进</span><span style="box-sizing: border-box;">一步研究的课题。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">从技术“刚性”的思维，转向“柔性”<span style="box-sizing: border-box;">治理思维，构建一条“柔性”治理路径，</span><span style="box-sizing: border-box;">不断激发多群体参与城市空间治理的主</span><span style="box-sizing: border-box;">观能动性，通过调动积极性使规划实施</span><span style="box-sizing: border-box;">顺利完成。“柔性”治理的重点在于教</span><span style="box-sizing: border-box;">化、协调、激励和互补，这恰好从本质</span><span style="box-sizing: border-box;">上解决了当今规划因参与度不高而产生</span><span style="box-sizing: border-box;">的公平性、公开性和公正性问题，通过</span><span style="box-sizing: border-box;">柔性治理，使得各个主体能够积极参与、</span><span style="box-sizing: border-box;">投入到空间治理的全过程。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/OLsnsncVOOzwTgC7IHDvTeXlXdl2SaGZ7RvvUMSGdAbehlnNhP6XBtL5Z3sqyrw5l85MDibicxPGX2wyUUPsP63Q/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 10px 0% 20px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;padding: 15px;border-width: 1px;border-radius: 5px;border-style: solid;border-color: rgb(197, 226, 224);width: 90%;box-sizing: border-box;"><section style="font-size: 14px;color: rgb(110, 110, 110);box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">来源：2020年04期《规划师》杂志</p></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="background-color: rgb(32, 84, 156);height: 1px;box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">新媒体编辑：刘晓莹</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">审读：刘芳</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 0px;box-sizing: border-box;" powered-by="gulangu"><section style="padding: 0px 1.5em;margin-bottom: -35px;box-sizing: border-box;"><section style="padding: 10px;width: 100%;display: inline-block;background-color: rgb(156, 94, 21);box-sizing: border-box;"><section style="text-align: center;color: rgb(255, 255, 255);font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">文章全文详见《规划师》2020年04期</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">《因“制”而“治”：城市规划实施中的“程序正义”——基于凤凰山庄征收事件的讨论》</p></section></section></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="width: 100%;font-size: 0px;box-sizing: border-box;"><section style="margin-left: 24px;border-bottom: 1px solid rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="float: left;margin-top: -1px;background-color: rgb(255, 255, 254) !important;box-sizing: border-box;"><section style="width: 0px;height: 8px;border-left: 1px solid rgb(156, 94, 21);margin-left: 23px;box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 16px;margin-left: 8px;box-sizing: border-box;"><section style="width: 16px;height: 8px;border-left: 1px solid rgb(156, 94, 21);border-right: 1px solid rgb(156, 94, 21);border-bottom: 1px solid rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 8px;height: 16px;margin-top: -8px;border-top: 1px solid rgb(156, 94, 21);border-right: 1px solid rgb(156, 94, 21);border-bottom: 1px solid rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="width: 8px;height: 16px;border-top: 1px solid rgb(156, 94, 21);border-left: 1px solid rgb(156, 94, 21);margin-top: -1px;box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="float: right;margin-top: -1px;background-color: rgb(255, 255, 254) !important;box-sizing: border-box;"> <section style="width: 0px;height: 8px;border-right: 1px solid rgb(156, 94, 21);margin-right: 8px;box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 16px;margin-top: -1px;box-sizing: border-box;"><section style="width: 16px;height: 8px;border-right: 1px solid rgb(156, 94, 21);border-left: 1px solid 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0.5em 0px;text-align: left;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;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(249, 110, 87);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;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="text-align: justify;box-sizing: border-box;" powered-by="gulangu"><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;color: rgb(132, 81, 21);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<br style="box-sizing: border-box;"  /></span></p><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;color: rgb(132, 81, 21);box-sizing: border-box;">邮编：530029</span></p><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;color: rgb(132, 81, 21);box-sizing: border-box;">邮箱：planner@21cn.net</span></p><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;color: rgb(132, 81, 21);box-sizing: border-box;">网址：www.planners.com.cn</span></p><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;color: rgb(132, 81, 21);box-sizing: border-box;">电话：0771-2438012</span></p><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;color: rgb(132, 81, 21);box-sizing: border-box;">传真：0771-2436269</span></p></section><section style="margin: 10px 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;padding: 10px 10px 5px;box-sizing: border-box;"><section style="margin: 10px 0% 0px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: bottom;width: 61.8%;box-sizing: border-box;"><section style="margin: -10px 0% 0px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 25%;box-sizing: border-box;"><section style="margin-top: 10px;margin-bottom: 10px;font-size: 10px;box-sizing: border-box;" powered-by="gulangu"><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;">更</p></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 25%;box-sizing: border-box;"><section style="margin-top: 10px;margin-bottom: 10px;font-size: 10px;box-sizing: border-box;" powered-by="gulangu"><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;">多</p></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 25%;box-sizing: border-box;"><section style="margin-top: 10px;margin-bottom: 10px;font-size: 10px;box-sizing: border-box;" powered-by="gulangu"><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 style="display: inline-block;vertical-align: top;width: 25%;box-sizing: border-box;"><section style="margin-top: 10px;margin-bottom: 10px;font-size: 10px;box-sizing: border-box;" powered-by="gulangu"><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 style="color: rgb(67, 103, 117);box-sizing: border-box;" powered-by="gulangu"><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 style="text-align: justify;box-sizing: border-box;" powered-by="gulangu"><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: justify;box-sizing: border-box;" powered-by="gulangu"><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: justify;box-sizing: border-box;" powered-by="gulangu"><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: justify;box-sizing: border-box;" powered-by="gulangu"><p style="clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section><section style="display: inline-block;vertical-align: bottom;width: 38.2%;box-sizing: border-box;"><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;" powered-by="gulangu"><section style="color: rgb(67, 103, 117);font-size: 14px;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 style="margin: 0px 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="1" data-w="430" src="http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0mgrWpmGjF9YpCjMMU2L6zcpneIWnTKAdXic0LKBqtOaJ1pIF9zG6BCtdqeYyPsiaBn6Wef8Xib8aInYA/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 style="width: 9px;height: 9px;float: left;border-bottom: 2px solid rgb(156, 94, 21);border-left: 2px solid rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 9px;height: 9px;float: right;border-bottom: 2px solid rgb(156, 94, 21);border-right: 2px solid rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section></section>
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