【作者】 刘斌；

【导师】 李建伟； 赵海春；

【作者基本信息】 西北大学 ， 城市规划硕士（专业学位）， 2022， 硕士

【摘要】 规划条件作为实施城乡规划和管控开发建设的主要依据,在城乡规划建设活动中占据着重要地位。随着政治、经济等社会形势的变化,规划条件变更现象日益频发,这对城市规划的适应性与严肃性提出了挑战。因此,分析规划条件变更的影响因素、构架建规划条件变更论证框架研究对于城市高质量发展具有重要意义。本研究基于文献研究和案例研究,对规划条件的基本内容、变更的主要类型以及现状问题展开剖析,运用定量、实证、定性相结合的方法分析探究规划条件变更的主客体影响因素。在此基础上,引入开发单元的理念,进而建构了“三位一体”的规划条件变更论证框架体系,并提出针对规划条件变更管理的保障机制,为促进规划条件的科学合理变更提供理论依据和案例支撑,具有重要的实践价值和创新意义。主要研究结论如下:(1)规划条件变更的必然性及其六大问题。从哲学基础、法理基础和现实基础三个维度辨识规划条件变更在城市规划管理中的必然性,进而基于控制性详细规划的指标体系分类,将规划条件变更分为规定性指标和指导性指标两类。通过对规划条件变更的总结归纳,认为其存在的现状问题主要体现在变更效力层级、指标弹性、论证审查机制、自由裁量权、公众参与、部门协调六个方面。即规划条件变更的法律依据不明确且效力较低,规划指标的缺乏一定的弹性空间,论证审查机制的不完善管理者行政裁量权较为自由,公众参与机制不健全,管理部门间的协调沟通机制不完善等问题,导致规划条件常常不适用,需要变更。(2)规划条件变更是主客体多个影响因素共同作用的结果。利益主体包括公众、建设单位、城市规划行政主管部门和专家等四大利益主体。规划条件变更的客体影响因素包括法律规范、规划文件、公共利益、经济因素和生态因素等五个方面。其中,符合法律规范及上位规划等规划是变更的前提;保障公众利益是规划条件变更的底线;经济因素是规划条件变更的动力;生态因素是影响规划条件变更的重要方面。规划条件变更需考虑上述影响因素,并在过程中保障多方主体的利益。(3)架构“周边片区—开发单元—地块自身”三位一体的规划条件变更论证的框架体系。在坚持公共利益目标导向下,从生活圈的理论内涵出发,通过引入开发单元,建构“周边片区—开发单元—地块自身”三位一体的规划条件变更论证空间层次。在此基础上梳理出包括项目解读、必要性和可行性等三个方面的变更论证流程以提升论证科学性及合理性。同时,从变更决策机制、公共问责机制和公众监督机制等三方面提出科学合理论证的保障机制,最终建构出规划条件变更论证的框架体系。(4)以西安沣东新城凤凰城和西安航天基地航天六小规划条件变更项目为例,基于规划条件变更论证框架体系进行实证研究。结果表明该框架体系具有一定的实践可操作性。更多还原

【Abstract】 As the main content and procedure of implementing urban and rural planning and controlling development and construction activities,planning conditions play an important role in urban and rural planning and construction activities.With the changes of political,economic and other social situations,the change of planning conditions is becoming more and more frequent,which challenges the dynamic adaptability and seriousness of urban planning.Therefore,it is of great significance to clarify the influencing factors of planning condition change and to structure the demonstration framework for justifying changes for urban high-quality development.Based on a large number of documents and practical cases,this study analyzes the basic content,main types and current problems of planning conditions,and uses the combination of quantitative and qualitative methods to analyze and explore the influencing factors of planning conditions;On this basis,the concept of development unit is introduced,and then the "Trinity" planning condition change demonstration framework system is constructed,and the guarantee mechanism for planning condition change management is proposed,which provides theoretical basis and case support for promoting the scientific and reasonable change of planning conditions,which has important practical value and innovative significance.The main conclusions are as follows:(1)The inevitability and main problems of the change of planning conditions.The inevitability of planning condition change in urban planning management is identified from the three dimensions of philosophical basis,legal basis and practical basis.Then,based on the classification of the index system of planning control,the planning condition change is divided into two categories: prescriptive index and guiding index.By summarizing the change of planning conditions,it is considered that the existing problems are mainly reflected in six aspects: change effectiveness level,index flexibility,demonstration and review mechanism,discretion,public participation and departmental coordination.That is,the legal basis of planning conditions is not clear and the effect is low;the determination of planning indicators is difficult to accurately predict the requirements of economic development and lacks a certain elastic space;demonstrate that the review mechanism is imperfect and the administrative discretion of managers is relatively free;public participation is mostly superficial and has little effect on the change of planning conditions;there are barriers to coordination and communication among management departments,and planning adjustment is more common.(2)The change of planning conditions is the result of the joint action of multiple influencing factors of subject and object.The four main subjects of interest include the public,construction units,administrative departments of urban planning and experts.At the same time,through the attribute weight judgment method,it is concluded that the object influencing factors of the change of planning conditions mainly include legal norms,planning documents,public interests,economic factors and ecological factors.Among them,compliance with the requirements of legal norms is the basis of change;whether it conforms to the development direction of planning documents such as superior planning is the premise of change;protecting the public interest is the bottom line of the change of planning conditions;the development and change of social and economic conditions is the driving force for the change of planning conditions;ecological factors are important aspects affecting the change of planning conditions.the above influencing factors shall be considered for the change of planning conditions,and the interests of multiple subjects shall be protected in the process.(3)A framework system for the demonstration of changes to planning conditions that integrates the surrounding area,the development unit and the plot itself.Under the guidance of the public interest objective,the theoretical connotation of the living circle is taken into account,and a three-in-one spatial hierarchy of "the surrounding area-the development unit-the plot itself" is constructed through the introduction of the development unit.On the basis of this,the three aspects of the change argument process,including project interpretation,necessity and feasibility,are sorted out to enhance the scientific and rational nature of the argument.At the same time,a safeguard mechanism for scientific and reasonable argumentation is proposed in three aspects,including the mechanism for decision making on changes,the mechanism for public accountability and the mechanism for public supervision,and finally a framework system for changes in planning conditions is constructed.(4)An empirical study was carried out based on the framework system for justifying changes in planning conditions,taking the Phoenix City in Xi’an Fengxicheng and the Sixth Primary School in Xian Space Base as examples.The results show that the framework system has a certain degree of practical operability.更多还原