Abstract: The community is the basic unit of governance and in people’s daily lives. Community planning is considered to be a crucial instrument to achieve the “co-construction, co-governance, and co-sharing” system, promoting good governance at the community level. Extant studies perceive community planning as a type of comprehensive planning comprising social, economic, and cultural aspects, along with the bottom-up negotiation processes of various stakeholders. Urban planning, at the community level in China, mostly manifests as residential estate planning, i.e., the blueprint of housing estates. Along with the urbanization modes shifting from vast expansion to quality improvement, Chinese community planning has experienced a transition to pursuing quality instead of quantity in terms of the residential environment and public participation. The transition progress should be further investigated with empirical cases. Since the planning and construction of subsidized housing estates are mainly led by the local governments, their residential environment quality is influenced by relevant policies and guidelines. Therefore, research on the planning and implementation of subsidized housing estates in different stages can reflect the progress of community planning transitions. This study first examined the evolution of Chinese community planning policies at the macro-level, and then explored the planning contents and built environment of subsidized housing estates at the micro-level, taking the early-built (1986-2009) and newly-built (2010-present) subsidized housing estates in Guangzhou as examples. The planning content, implementation, and public participation were analyzed through questionnaire surveys and semi-structured interviews. The results showed that the planning standards of subsidized housing estates were considerably improved. In particular, the early-built subsidized housing estates were equipped with public services and facilities of standards at the time, but lacked regular maintenance. Additionally, public participation was nearly non-existent in this development stage. Nevertheless, residents successfully improved their living environments by adding new public facilities with the aid of social organizations, which demonstrate the capability of residents and social organizations to improve the quality of their residential environments. The newly-built subsidized housing estates had higher planning standards than earlier ones, with public participation officially incorporated into the decision-making process. Consequently, the public had more rights to participate in the planning and implementation procedures. Furthermore, this plan replaced facilities that had high costs for maintenance and were rarely used by residents with facilities that were more frequently used, considering the actual income level and lifestyle of residents. This reflects the philosophy of a people-oriented plan; however, public participation in this phase remained procedural rather than substantive, and the residents were not involved properly in the decision-making process. On one hand, this was attributed to the local state's pursuit of land revenue with the efficiency-first orientation. Hence, local governments attached more importance to the quantity and economic benefits than to the quality and maintenance of subsidized housing, and tended to leave land with better locations to commodity housing development projects. Moreover, it lacked a feasible and effective operation mechanism for the affordable housing community and public participation in community planning. On the other hand, this can be summarized as the contradiction between the strategy during plan formulation and the periodicity and dispersion of plan implementation. It has been suggested that community planning should combine plan formulation and implementation, and the initiatives, resources, and capabilities of various stakeholders (i.e., the government, market, social organizations, and residents) should be mobilized as possible solutions to address any pressing issues.

Key words: quality of residential environments, community planning, subsidized housing estate, Guangzhou

摘要： 社区是社会治理的基石，构筑共建共治共享的社会治理模式是新时代对社区规划的顶层设计指引，也是国外社区规划的魅力所在。国内的社区规划长期聚焦于对物质空间的刻画，但随着政府和公众对居住环境品质关注度的提升，社区规划正逐步转型，但转型程度尚有待探索。以广州市早期及新建成的保障房社区为例，从居住环境品质的角度对规划实施成效及公众参与的影响程度进行比较评价。结果显示，保障房社区规划的制度设计与技术标准均有提升，规划编制与实施也更多地吸纳公众的意见。为社区规划的转型与社区共同缔造提供参考。

关键词: 居住环境品质, 社区规划, 保障房社区, 广州市