| 摘要: |
| 我国进入以城市更新为主的高
质量发展时期。更新过程是基于产权、
事权、财权的空间形态再优化，亟需从
控规管控转向聚焦街区/地块尺度的空
间开发管理制度。城市设计这一直观的
三维形态塑造和调整工具，能够较好的
满足新时期城市更新管理的需求，但目
前，我国的城市设计制度在立法环节、
管理依据、审查环节、许可环节等方面
存在问题和制度空缺，具体包括法定化
程度不足、编制和审查依据缺位、行政
许可冗余、配套政策缺位等。本文从当
前制度改革的紧迫需求出发，梳理北
京、上海、深圳及英国、新加坡等地面
向城市更新时期的城市设计制度优化探
索，从立法保证、管理审查、激励政策
三个方面总结经验教训，基于案例经验
对我国面向更新需求的城市设计制度构
建提出建议，即城市设计立法、更新前
设计控制、更新过程设计管理、设计审
查和更新许可制度，并配套基于三维形
态更新的奖补制度。 |
| 关键词: 城市设计 城市更新 设计审
查 制度改革 更新许可 |
| DOI：10.13791/j.cnki.hsfwest.20240624005 |
| 分类号: |
| 基金项目:十四五国家重点研发计划资助（SQ2022YFC3800244，2022YFC3800202） |
|
| Optimization of urban design system in the era of urban regeneration：Case studies basedon domestic and international urban design legislation, review and incentive systems |
|
TANG Jingxian,WANG Yu,ZHU Huichao,WANG Xiaochen,WU Yujie
|
| Abstract: |
| China has entered an era of high-quality development centered on urban regeneration. The
regeneration process entails the re-optimization of spatial forms based on property rights, administrative
powers, and financial powers, demanding an urgent shift from regulatory planning control to a spatial
development management system at the neighborhood/plot scale. Urban design, as an intuitive tool for
shaping and adjusting three-dimensional forms, is well-positioned to address the management requirements
of urban regeneration in the new era. However, currently, China’s urban design system faces challenges
and institutional gaps across key areas including legislation, management frameworks, review procedures,
and approval process, such as inadequate legalization, absence of clear frameworks for formulation and
review, administrative approval redundancies, and a lack of supporting policies. Building on the urgent
needs of ongoing institutional reforms, this paper examines the explorations into optimizing urban design
systems to support urban regeneration in three Chinese cities, Beijing, Shanghai, and Shenzhen, as well as
in the United Kingdom and Singapore.In China, Beijing, Shanghai, and Shenzhen have pioneered reforms
to their urban design systems to underpin urban regeneration efforts. Beijing has replaced plot-specific
regulatory planning with a “Comprehensive Planning and Implementation Plan”, which integrates urban
regeneration planning and implementation-focused urban design. Urban design serves as both a platform
for multi-stakeholder consultation and a basis for approval. The plan incorporates cost estimates and 3D
control parameters, facilitating the economic viability of regeneration projects and the management of
spatial forms. Shanghai has introduced a regional regeneration plan, which comprises primarily a planning
and implementation plan (including urban design), an interest balance plan, and a whole-life-cycle
management list for public elements. Shanghai’s urban design operates across three stages of regeneration:
the formulation of transfer conditions prior to regeneration, plan deliberations during the process, and the
approval of regeneration projects. Additionally, approval processes have been stratified based on the scale
of regeneration—the less extensive the regeneration, the more streamlined the approval process.
Nevertheless, due to pre-existing arrangements for approval authority, the plan amendment process remains
in place. Shenzhen was the first Chinese city to explore urban design systems tailored to regeneration, with
its framework fully integrated into key stages: the formulation of pre-regeneration design conditions,
negotiations on urban design plans during regeneration, plan reviews, and project approvals. Its regulatory
approach is more rigid compared to that of Shanghai and Beijing. Across these three cities’ institutional
reform practices, a preliminary system of pre-development control conditions and in-process consultation—
centered on urban design—has been established. While there are variations in rigidity and reform intensity
across the cities, key bottlenecks persist in legislation, design review, and administrative approval. The
United Kingdom and Singapore entered the urban regeneration phase earlier than China, and both possessvaluable commonalities and distinctive features in spatial development control worthy of reference. First, both nations prioritize “urban design” as the core of
meso- and micro-scale development control, having established systems that leverage urban design to support the spatial management of urban regeneration.
The first key insight is legislative safeguards: the legalization of design review in the UK, and the formalization of competitive clauses and post-review
processes in Singapore. The second is the adoption of a “pre-guideline/condition, post-review” management framework. Prior to project initiation, urban design
guidelines or development control manuals are formulated based on planning requirements and urban design standards to guide construction, with design
conditions legally embedded in land transfer documents. Following project initiation, a dedicated, professional body conducts a comprehensive review of both
the design plan and the economic viability plan, which acts as a prerequisite for granting regeneration approval. The third is the issuance of general urban
design guidelines/manuals detailed to the neighborhood and building scales—analogous to China’s urban design compilation regulations—where toolbox-style
detailed design guidance serves as the direct basis for design reviews. The fourth relates to administrative approval: approval categories are tailored to
regeneration needs to streamline review processes for specific urban regeneration types—such as small-scale renovations and use conversions—enhancing
efficiency. The fifth is the development of urban regeneration incentive policies tied to 3D form modifications, built on urban design and review processes,
which leverage the flexibility of urban design management to advance public-interest-oriented urban regeneration.Drawing on these case insights, this paper
proposes recommendations for constructing a China-specific urban design system tailored to regeneration needs, encompassing urban design legislation, preregeneration
design control, in-process regeneration design management, design review and regeneration approval mechanisms, and supporting reward and
subsidy systems linked to 3D form regeneration. |
| Key words: urban design urban regeneration design review institutional reform regeneration permit |
