اقتصاد و برنامه ریزی شهری

اقتصاد و برنامه ریزی شهری

بازسازی شرایط امکان ناسازگاری نظر و عمل در برنامه‌ریزی فضایی ایران به‌ هنگام تنظیم شدن نسبت میان کلیت ملی و تکثرهای منطقه‌ای

نوع مقاله : نظری و بنیادین

نویسندگان
1 دانشجوی دکتری شهرسازی، دانشکدۀ هنر و معماری، دانشگاه تربیت مدرس، تهران، ایران
2 استاد گروه شهرسازی، دانشکدۀ هنر و معماری، دانشگاه تربیت مدرس، تهران، ایران
چکیده
هدف این پژوهش، واکاوی لحظه‌ای است که سازماندهی فضایی توسعۀ ملی و منطقه‌ای به‌ مثابه مسئله‌ای برنامه‌ریزی‌شدنی صورت‌بندی می‌شود؛ لحظه‌ای تعیین‌کننده در داوریِ عملی برای تنظیم نسبت میان کلیت ملی و تکثرهای منطقه‌ای و شکل‌گیری ناسازگاری نظر و عمل در برنامه‌ریزی فضایی ایران. برای فهم هستی‌شناختی این لحظه، پژوهش با ترکیب دو رویکرد رئالیسم انتقادی و هرمنوتیک فلسفی انجام شده است. این مطالعه از نوع کیفی تفسیری است و تحلیل از طریق خوانش تفسیری اسناد برنامه‌های توسعه، آمایش سرزمین، قوانین و اسناد نهادی برنامه‌ریزی از آغاز تا برنامۀ هفتم توسعه صورت گرفته است. فرایند تحلیل با حرکت در دور هرمنوتیکی میان افق تاریخی، متون برنامه‌ای و پیش‌فهم پژوهشگر، به شناسایی الگوهای پایدار پرسش و تنش‌های معنایی در صورت‌بندی توسعۀ ملی ـ منطقه‌ای انجامید. یافته‌ها نشان می‌دهد برنامه‌ریزی همواره کوشیده است توسعه را به‌ مثابه کلیتی ملی و قابل هدایت در زمان تثبیت کند، در حالی‌ که تکثرهای منطقه‌ای پیوسته آینده‌های متفاوت و عدم‌قطعیت‌های فضایی را به این کلیت وارد کرده‌اند. پاسخ تاریخی نظام برنامه‌ریزی به این تنش، نه پذیرش دو سطح فضایی متفاوت با دو منطق سیاستی درگیرانه، بلکه بازصورت‌بندی مداوم موقعیت مواجهه از طریق شیوه‌های مختلف تنظیم زمان توسعه بوده است؛ از همگن‌سازی فضایی، ساختاری‌سازی زمانمندی و زیستن با عدم‌قطعیت تا میانجی‌گری هویت ملی و استحالۀ منطقه در منطق‌ِ زنجیره‌ای توسعۀ ملی. بر این‌اساس، ناسازگاری نظر و عمل نه شکافی پرشدنی، و نه حتی پیامد، بلکه خودش منطقِ درونیِ یک افقِ فهمِ مسلط است که برای حفظ انسجام و امکان کنش در زمان توسعه، تفاوت‌های فضایی را مهار، تعلیق یا بازجذب می‌کند.
کلیدواژه‌ها
موضوعات

عنوان مقاله English

Reconstructing the conditions of possibility for the inconsistency between theory and practice in Iran’s spatial planning when regulating the relationship between national totality and regional multiplicities

نویسندگان English

Faramarz Rostami 1
Hashem Dadashpoor 2
1 Urban and Regional Planning Department, Faculty of Arts and Architecture, Tarbiat Modares University, Tehran, Iran
2 Urban and Regional Planning Department, Faculty of Arts and Architecture, Tarbiat Modares University, Tehran, Iran
چکیده English

This study aims to examine the moment in which the spatial organization of national and regional development is constituted as a plannable problem—a decisive moment in practical judgment for regulating the relationship between national totality and regional multiplicities, and in the emergence of the inconsistency between theory and practice in spatial planning in Iran. To achieve an ontological understanding of this moment, the research is conducted through a combination of critical realism and philosophical hermeneutics. This study adopts a qualitative interpretive approach, and the analysis is carried out through an interpretive reading of development plans, spatial planning documents, laws, and institutional planning texts from their inception up to the Seventh Development Plan. The analytical process, moving within the hermeneutic circle between the historical horizon, planning texts, and the researcher’s pre-understanding, led to the identification of enduring patterns of questioning and semantic tensions in the formulation of national–regional development. The findings indicate that planning has consistently sought to stabilize development as a national, steerable totality over time, while regional multiplicities have continuously introduced divergent futures and spatial uncertainties into this totality. The historical response of the planning system to this tension has not been the acceptance of two distinct spatial levels with competing policy logics, but rather the continual reconfiguration of the situation of encounter through various modes of regulating development time, ranging from spatial homogenization and the structuring of temporality to living with uncertainty, mediating national identity, and subsuming the region within the chain logic of national development. Accordingly, the inconsistency between theory and practice is neither a gap to be bridged nor merely a consequence. Rather, it constitutes the internal logic of a dominant horizon of understanding that, to maintain coherence and enable action over development time, constrains, suspends, or reabsorbs spatial differences.

کلیدواژه‌ها English

critical realism
hermeneutics
national development
planning system
regional development
spatial planning
territorial good
Ahmadipour, Z., Romina, E., Abdi, H., & Yousefi Mehr, S. H. (2025). A critique of the structure of Iran’s national division system. Geography and Environmental Planning, 36(2), 1-26. https://doi.org/10.22108/gep.2025.143790.1697 [In Persian]
Akbari, Y., Imani Jajarmi, H., & Rostamalizadeh, V. (2016). Analysis of land use barriers in Iran. Science and Technology Policy Letters, 06(3), 5–13. https://dor.isc.ac/dor/20.1001.1.24767220.1395.06.3.1.8 [In Persian]
Albrechts, L. (2017). Strategic planning: ontological and epistemological challenges. In The Routledge Handbook of Planning Theory (pp. 28-40): Routledge. https://doi.org/10.4324/9781315696072-3 
Alexander, E. R. (2022). On planning, planning theories, and practices: A critical reflection. Planning Theory, 21(2), 181–211. https://doi.org/10.1177/14730952211066341 
Amirahmadi, H. (1986). Regional planning in Iran: a survey of problems and policies. The Journal of Developing Areas, 20(4), 501–530.
Barakpour, N., & Asadie, I. (2022). Areas of transition to integrated urban management in Iran, with emphasizing the duties, functions and competencies of the city council and municipality. Urban Economics and Planning, 3(2), 70–81. https://doi.org/10.22034/uep.2022.319517.1151 [In Persian]
Batel Institution. (1972). Regional development plan. Plan and Budget Organization [In Persian]
Behrend, L. (2025). Understanding is what planners do–Towards a hermeneutic perspective on planning practice and research. Planning Theory, 24(3), 219–241. https://doi.org/10.1177/14730952241279633
Bhaskar, R. (2005/1979). The possibility of naturalism: A philosophical critique of the contemporary human sciences. Routledge.
Bhaskar, R. (2008/1975). A realist theory of science. Routledge. 
Bhaskar, R. (2009). Scientific realism and human emancipation: Routledge.
Campbell, H. (2006). Just planning: The art of situated ethical judgment. Journal of planning education and research, 26(1), 92–106. https://doi.org/10.1177/0739456X06288090 
Campbell, H. (2012a). ‘Planning ethics’ and rediscovering the idea of planning. Planning Theory, 11(4), 379–399. https://doi.org/10.1177/1473095212442159 
Campbell, H. (2012b). Planning to change the world: Between knowledge and action lies synthesis. Journal of planning education and research, 32(2), 135–146. https://doi.org/10.1177/0739456X11436347 
Council of Ministers. (1937). Statute of the Economic Council. [In Persian]
Dadashpoor, H., & Dadejani, M. (2015). Identifying and prioritizing the radical factors influencing regional competitiveness (case study: Kurdistan province). Regional Planning, 19(5), 27 – 42. https://dor.isc.ac/dor/20.1001.1.22516735.1394.5.19.3.0 [In Persian]
Dadashpoor, H., & Fathejalali, A. (2013). Analyzing regional specialization and spatial concentration patterns of industries in Iran. Journal of Regional Planning, 3(11), 1–18. https://dor.isc.ac/dor/20.1001.1.22516735.1392.3.11.3.0 [In Persian]
Daneshvar, M., Ghaffari, A., & Majedi, H. (2019). Strategic planning in the context of institutionalism is a theory for practice. Armanshahr Architecture & Urban Development, 11(25), 319–328.
Davoudi, S. (2015). Planning as practice of knowing. Planning Theory, 14(3), 316–331. https://doi.org/10.1177/1473095215575919 
de Neufville, J. I. (1983). Planning theory and practice: Bridging the gap. Journal of Planning Education and Research, 3(1), 35–45. https://doi.org/10.1177/0739456x8300300105
de Satgé, R., & Watson, V. (2018). Conflicting rationalities and southern planning theory. In Urban planning in the global south: Conflicting rationalities in contested urban space (pp. 11-34): Springer. https://doi.org/10.1007/978-3-319-69496-2_2 
Dobrucká, L. (2016). Reframing planning theory in terms of five categories of questions. Planning Theory, 15(2), 145–161. https://doi.org/10.1177/1473095214525392 
Dorostkar, E. (2021). Measuring Development Based on Economic Security Indicators and City Analysis (Case Study: Sistan and Baluchestan Province). Urban Economics and Planning, 2(2), 101–110. https://doi.org/10.22034/ue.2021.02.02.05  [In Persian]
Eizenberg, E., Dabovic, T., & Mäntysalo, R. (2025). Spatial Planning Theories and Practices: Bridging the Gap by a Joint Inquiry. Difficulties for Theorization Within Planning Research and Practice–An Exploration of Key Dimensions of Planning Theories, 20. https://doi.org/10.1080/14649357.2025.2550830
Expediency Discernment Council. (2003). Vision document of the Islamic Republic of Iran in the horizon of 1404 (2025). [In Persian]
Expediency Discernment Council. (2011). General policies of spatial planning. [In Persian]
Fabian, J. (2014). Time and the other: How anthropology makes its object: columbia university press.
Faludi, A. (1970). The planning environment and the meaning of “planning”. Regional Studies, 4(1), 1–9. https://doi.org/10.1080/09595237000185011 
Farajirad, K., Kazemian, G., & Rokneddin Eftekhari, A. (2013). Pathology of regional development policies in Iran: An institutional approach. Management and Development Process, 26(2), 27–58. https://dor.isc.ac/dor/20.1001.1.17350719.1392.26.2.2.0 [In Persian]
Farhangdoust, H., & Hanaee, T. (2026). A comparative study of government and governance: investigating semantic differences in Iran’s contemporary urban planning and management system. Urban Economics and Planning, 7(2), 38–66. https://doi.org/10.22034/uep.2025.541868.1694
Forester, J. (1999). The deliberative practitioner. MIT Press.
Forester, J. (2009). Dealing with differences. Oxford University Press.
Forester, J. (2013). Planning in the face of conflict. American Planning Association Press.
Friedmann, J. (1987). Planning in the public domain: From knowledge to action. Princeton University Press.
Friedmann, J. (2005). Globalization and the emerging culture of planning. Progress in Planning, 64(3), 183–234. https://doi.org/10.1016/j.progress.2005.05.003 
Gadamer, H.-G. (1994). Truth and Method (J. Weinsheimer, Trans.). Continuum Press. 
Gadamer, H.-G. (2007). The Gadamer reader: A bouquet of the later writings: Northwestern University Press.
ghaffaryfard, m. (2019). Review the process of development policy and regional balance during development plans in Iran (SWOT approach). Strategic Studies of public policy, 9(30), 21-41. [In Persian]
Godarzi, M., & Hajiani, E. (2023). Futurology of the implementation of National Land Use Document. Town and Country Planning, 15(1), 1–17. https://doi.org/10.22059/jtcp.2023.348562.670349
Golkarami, A. (2025). Explanation the geopolitical roots of territorial imbalance in Iran’s Spatial Governance. Political Organizing of Space, 7(2), 109–137. https://doi.org/10.48311/psp.7.2.109
Gunder, M. (2010). Planning as the ideology of (neoliberal) space. Planning Theory, 9(4), 298–314. https://doi.org/10.1177/1473095210368878
Gunder, M., Madanipour, A., & Watson, V. (2017). Planning Theory: An Introduction. In The Routledge Handbook of Planning Theory (pp. 1-12): Routledge. https://doi.org/10.4324/9781315696072-1 
Hartwig, M. (2015). Dictionary of critical realism: Routledge.
Harvey, D. (1978). On planning the ideology of planning. Planning Theory in the 1980s, 213–233. 
Healey, P. (1992). Planning through debate: The communicative turn in planning theory. The Town planning review, 143–162. https://doi.org/10.3828/tpr.63.2.422x602303814821
Healey, P. (1999). Institutionalist analysis, communicative planning, and shaping places. Journal of planning education and research, 19(2), 111–121. https://doi.org/10.1177/0739456X9901900201 
Healey, P. (2009). The pragmatic tradition in planning thought. Journal of planning education and research, 28(3), 277–292. https://doi.org/10.1177/0739456X08325175 
Heydari, A. (2018). Iranian Regulation: Governmentality and Rising the Modern State in Iran. Iranian Journal of Sociology, 19(1), 126–148. https://doi.org/10.22034/jsi.2018.36650  [In Persian]
Heydari, A. (2018). Iranian Regulation: Governmentality and Rising the Modern State in Iran. Iranian Journal of Sociology, 19(1), 126–148. https://doi.org/10.22034/jsi.2018.36650  [In Persian]
Hoch, C. (2006). Emotions and planning. Planning theory & practice, 7(4), 367–382. https://doi.org/10.1080/14649350600984436 
Hoch, C. (2007). Making plans: Representation and intention. Planning Theory, 6(1), 16–35. https://doi.org/10.1177/1473095207075148
Huxley, M. (2002). Governmentality, gender, planning. Planning Future, edited by Philip Allmendinger and Mark Tewdwr-Jones, 136–154. 
Islamic Consultative Assembly of Iran. (1989). The regulations of the first program of economic, social and cultural development of the Islamic Republic of Iran. [In Persian]
Islamic Consultative Assembly of Iran. (1994). the regulations of the second program of economic, social, and cultural development of the Islamic Republic of Iran. [In Persian]
Islamic Consultative Assembly of Iran. (2000). The regulations of the third program of economic, social, and cultural development of the Islamic Republic of Iran. [In Persian]
Islamic Consultative Assembly of Iran. (2005). The regulations of the fourth program of economic, social, and cultural development of the Islamic Republic of Iran. [In Persian]
Islamic Consultative Assembly of Iran. (2011). The regulations of the fifth program of economic, social, and cultural development of the Islamic Republic of Iran. [In Persian]
Islamic Consultative Assembly of Iran. (2017). The regulations of the sixth program of economic, social, and cultural development of the Islamic Republic of Iran. [In Persian]
Islamic Consultative Assembly of Iran. (2024). The regulations of the seventh program of economic, social, and cultural development of the Islamic Republic of Iran. [In Persian]
Katouzian, H. (2012). Iranian history and politics: The dialectic of state and society: Routledge.
Li, T. M. (2007). The will to improve: Governmentality, development, and the practice of politics: Duke University Press.
Low, N., & Sturup, S. (2018). Being and planning, world formation, and authenticity in Heideggerian analysis. Planning Theory, 17(3), 313-331. https://doi.org/10.1177/1473095217704234
Mir Mohammadi, S. M., Kazemian, G., & Rezaei, S. (2021). The Requirements of spatial planning implementation in the process of management and development. Quarterly Journal of The Macro and Strategic Policies, 9(34), 360–389.  https://doi.org/10.30507/jmsp.2021.246747.2120  [In Persian]
Miraftab, F. (2009). Insurgent planning: Situating radical planning in the global south. Planning Theory, 8(1), 32–50. https://doi.org/10.1177/1473095208099297 
Naqvi, S. H. R., Pourezzat, A. A., Zolfagharzadeh, M. M., & Kazmi, S. Z. A. (2025). Designing a regional inclusive development system based on social justice case study! Border areas of Iran and Pakistan. Urban Economics and Planning, 6(1), 44–57. https://dor.isc.ac/dor/20.1001.1.28212118.1404.6.1.3.2 [In Persian]
National Consultative Assembly of Iran.  (1949). The first plan for seven-year development (1949-1955). [In Persian]
National Consultative Assembly of Iran. (1950). Law authorizing the implementation of the 27‑month detailed plan of the Plan Organization. [In Persian]
National Consultative Assembly of Iran. (1956). The second plan for seven-year development (1956-1962). [In Persian]
National Consultative Assembly of Iran. (1962). The third plan for five-year development (1962-1967). [In Persian]
National Consultative Assembly of Iran. (1968). The fourth plan for five-year development (1968-1972). [In Persian]
National Consultative Assembly of Iran. (1973). The fifth plan for five-year development (1973-1977). [In Persian]
Nejati, M., & Nedae Tousi, S. (2025). The knowledge-practice gap in urban planning: Insights from consulting firms in Tehran. Urban Economics and Planning, 6(4), 126–147. https://doi.org/10.22034/uep.2025.540516.1687 [In Persian]
Ngwenya, N., & Cirolia, L. R. (2021). Conflicts between and within: the ‘conflicting rationalities’ of informal occupation in South Africa. Planning theory & practice, 22(5), 691–706. https://doi.org/10.1080/14649357.2020.1808237 
Nili, M., & Karimi, M. (2017). Planning in Iran (1937-1977). Nashre Ney.
Noorian, F., & Esmaeili, M. (2023). Investigating the concept of “praxis” in reducing the gap between theory and practice: the need to develop “soft/political” skills along with “hard/technical” skills based on modern urban planning education. Environmental-based Territorial Planning, 16(61), 27-48. [In Persian].  https://sanad.iau.ir/Journal/ebtp/Article/988206 
Omidali, E., Fanni, Z., & Shafie Sabet, N. (2022). Explain the role of metropolis competitiveness in the regional development of Iran (Case study: Tehran metropolis). Human Geography Research, 54(1), 253–267. https://doi.org/10.22059/jhgr.2021.317480.1008237  [In Persian]
Ortiz, C. (2022). Storytelling otherwise: Decolonising storytelling in planning. Planning Theory, 22(2), 177–200. https://doi.org/10.1177/14730952221115875 
Rahimi, H. (2015). spatial action research approach: inter-scalar equilibrium of power, knowledge, and decision making in spatial strategic planning. The Journal of Spatial Planning and Geomatics, 19(1), 53-78. [In Persian]
Rahmani, M., & Azizi, M. M. (2021). Trend analysis of “understanding of Tehran” through its development plans. Journal of Fine Arts: Architecture & Urban Planning, 26(1), 31–41. https://doi.org/10.22059/jfaup.2021.327015.672653  [In Persian]
Roshani, S., & Sarrafi, M. (2021). The evolution of urban planning and its connections with the formulation of the question of Iran in the new knowledge system. Urban Planning Knowledge, 5(3), 91–106. https://doi.org/10.22124/upk.2021.19745.1647 [In Persian]
Roy, A. (2005). Urban informality: Toward an epistemology of planning. Journal of the American Planning Association, 71(2), 147–158. https://doi.org/10.1080/01944360508976689 
Roy, A. (2009). Why India cannot plan its cities: Informality, insurgence and the idiom of urbanization. Planning Theory, 8(1), 76–87. https://doi.org/10.1177/1473095208099299 
Salehi, E., & Pourasghar, S. F. (2009). An analysis of challenges facing territorial management in Iran. Strategy, 17(3), 149–181. https://dor.isc.ac/dor/20.1001.1.10283102.1388.17.3.6.8  [In Persian]
Sameni, A., & Zebardast, E. (2023). Feasible pathology of land use in Iran: Case study: the fourth round of land use studies. Majlis and Rahbord, 30(115), 127-162. https://doi.org/10.22034/mr.2022.5403.5159 [In Persian]
Sanyal, B. (2005). Comparative planning cultures: Routledge.
Sarafi, M., & Nejati allaf, N. (2015). New regionalism approach for improving the system of spatial development management in Iran. Human Geography Research, 46(4), 857–874. https://doi.org/10.22059/jhgr.2015.51221 [In Persian]
Sarrafi, M. (2000). Fundamentals of regional development planning. Planning and Budget Organization.
Scott, J. C. (2020). Seeing like a state: How certain schemes to improve the human condition have failed: Yale University Press.
Sedighi, E., Salman Mahini, A., Mirkarimi, S. H., Daliri, H., & Fath, B. (2019). Identification and analysis of key drivers of change in regional land use planning based on a foresight approach in Gorgan township. Town and Country Planning, 11(2), 205–233. https://doi.org/10.22059/jtcp.2019.285863.670010 [In Persian]
Seifoldini, F., Panahandehkhah, M., & Ghadami, M. (2010). Survey and analysis of limits & challenges of regional development planning in Iran. Human Geography Research, 42(3), 83–98. [In Persian]
Sejodi, M., Ziari, K., Pourahmad, A., & Yasoori, M. (2022). Examining national, regional, and provincial plans and programs based on regional approach: The case study of Gilan province plans from district 1 of land use planning. Town and Country Planning, 14(1), 1–24. https://doi.org/10.22059/jtcp.2022.333128.670269 [In Persian]
Set-Iran Consulting Engineers. (1976). Report of studies on the long-term strategy of land management plan. Plan And Budget Organization [In Persian]
Shafie Haghshenas, M., & Dadashpoor, H. (2023). An analysis of the effectiveness of caspian sea ports on the enhancement of Iran’s spatial structure interconnection. Town and Country Planning, 15(1), 73–86. https://doi.org/10.22059/jtcp.2022.343704.670328 [In Persian]
Shahvand, A., & Saeedinia, H. (2019). An analysis of the historical background of the emergence of development planning and the formation of the planning organization in Iran (the Reign of Pahlavi 1925-1948). History of Islam and Iran, 28(40), 33–57. https://doi.org/10.22051/hii.2018.18618.1541 [In Persian]
Sharifzadegan, M. H., Nedaee Tousi, s., & Piryan kalat, O. (2021). The future of spatial development in the western region of Kermanshah province is based on the energy industry. Urban Economics and Planning, 2(4), 355–373. https://doi.org/10.22034/ue.2022.2.04.08 [In Persian]
Sheikhi, M. (2001). Regional planning in Iran (1989-2001): Necessities, trends, and challenges. Urban Management,(6), 18–25. [In Persian]
Supreme Council of Spatial Planning. (2017). National spatial planning orientation document. [In Persian]
The Parliament Research Center. (2016). Analyses of the document of the sixth program of economic, social, and cultural development of the Islamic Republic of Iran, (Report No. 14955). [In Persian]
Tofigh, E. (2019). Jumping from the present moment. Shargh. Retrieved from https://www.sharghdaily.com/fa/tiny/news-244884 [In Persian]
Towfigh, E. (2021). Rearrangement of the empire. [In Persian]
Towfigh, E., & Yosefi, M. (2021). About the constitutional revolution. Game No. [In Persian]
Veicy, H., & Mehmandoost, K. (2013). The impact of unitary political system on spatial distribution and development of Iran’s cities. Geopolitics Quarterly, 9(30), 204–229. https://doi.org/20.1001.1.17354331.1392.9.30.7.0 
Watson, V. (2003). Conflicting rationalities: Implications for planning theory and ethics. Planning theory & practice, 4(4), 395–407. https://doi.org/10.1080/1464935032000146318 
Yousefvand, S., & Hemmat, S. (2025). The Governance challenge of development plan Laws in Iran: Divergent governance and neglect of the social sphere. The Journal of Community Development (Rural-Urban), 17(1), 7–25. https://doi.org/10.22059/jrd.2025.395213.668920 [In Persian]
Ziari, K., & Mohammadi, A. (2016). The pathology of regional development plans management in Iran and the choice of optimal management pattern. Journal of Geography and Regional Development, 14(1), 67–88. https://doi.org/10.22067/geography.v14i1.42027 [In Persian]
دوره 7، شماره 8
آبان 1405
صفحه 32-57

  • تاریخ دریافت 10 بهمن 1404
  • تاریخ بازنگری 14 اردیبهشت 1405
  • تاریخ پذیرش 15 اردیبهشت 1405