fa آسیب‌شناسی ساختار و جایگاه شورای‌عالی شهرسازی و معماری ایران به منظور نیازسنجی و امکان‌سنجی اصلاحات قانونی عمومى General پژوهشي Research <div style="text-align: justify;"><span style="font-size:12px;"><span style="font-family:Tahoma;"><span style="line-height:normal"><span style="direction:rtl"><span style="unicode-bidi:embed"><span lang="AR-SA">شورای‌عالی شهرسازی و معماری ایران به‌عنوان عالی‌ترین مرجع سیاست‌گذاری کالبدی، نقشی کلیدی در حکمرانی فضایی کشور ایفا می‌کند. با این حال، شواهد نشان می‌دهد که این نهاد پس از نیم قرن فعالیت، از جایگاه راهبردی خود فاصله گرفته و با چالش‌های مختلفی از &laquo;عالی بودن شورا&raquo; تا ضعف در ضمانت اجرایی مصوبات روبه‌روست. پژوهش حاضر با هدف آسیب‌شناسی ساختاری و جایگاه این شورا به منظور نیازسنجی و امکان‌سنجی اصلاحات قانونی انجام شده است. این پژوهش با رویکردی کیفی و با بهره‌گیری از روش‌های تحلیل اسنادی-حقوقی (قلمرو زمانی </span><span lang="FA">۱۳۵۱</span><span lang="AR-SA"> تا </span><span lang="FA">۱۴۰۴)</span><span lang="AR-SA">، تحلیل نهادی بر پایه مدل سه‌بعدی اسکات و مصاحبه‌های نیمه‌ساخت‌یافته با </span><span lang="FA">۱۲</span><span lang="AR-SA"> نفر از خبرگان و مدیران ارشد این حوزه انجام یافته است. یافته‌های پژوهش </span><span lang="FA">۲۷</span><span lang="AR-SA"> آسیب کلیدی شورای‌عالی را در چهار لایه شناسایی کرده است: </span><span lang="FA">۱. </span><span lang="AR-SA">مأموریتی: از جمله تضعیف مأموریت راهبردی، غرق شدن در جزئیات، رویکرد انفعالی و غفلت از شهرهای کوچک؛ </span><span lang="FA">۲. </span><span lang="AR-SA">ساختاری-نهادی: از جمله عدم توازن میان اختیارات و مسئولیت‌پذیری که موجب عدم شکل‌گیری چرخه فضیلت در عملکرد شورای‌عالی شده است (به‌گونه‌ای که شورا از اختیار تصمیم‌گیری برخوردار است، بدون آنکه مسئولیت متناسبی در قبال تحقق وظایف حاکمیتی، از جمله تأمین زمین در راستای اصل </span><span lang="FA">۳۱</span><span lang="AR-SA"> قانون اساسی و برنامه هفتم، داشته باشد)، تعارض منافع پنهان، موازی‌کاری با سایر شوراها و ابهام در جایگاه حقوقی نسبت به کمیسیون‌های ماده پنج؛ </span><span lang="FA">۳. </span><span lang="AR-SA">فرآیندی: از جمله فقدان بازوی نظارتی مقتدر، ضعف داده‌های یکپارچه و کندی ناشی از دیجیتالی‌سازی ناکافی؛ </span><span lang="FA">۴. </span><span lang="AR-SA">حکمرانی و مردمی‌سازی: از جمله تمرکزگرایی افراطی، بیگانگی با نهادهای محلی، شفافیت ناکافی و غفلت از ظرفیت نخبگان دانشگاهی. تحلیل تطبیقی نشان می‌دهد کارآمدی شورای‌عالی شهرسازی و معماری ایران نیازمند گذار از &laquo;کنترل جزئیات کالبدی&raquo; به &laquo;تنظیم‌گری راهبردی&raquo; و اصلاح نهادی مبتنی بر چرخه‌های بازخورد مثبت است؛ به‌گونه‌ای که در یک سازوکار خودتنظیم، اختیارات شورا متناسب با میزان تحقق وظایف حاکمیتی، به‌ویژه تأمین زمین، افزایش یا کاهش یابد و از این طریق چرخه فضیلت در عملکرد شورا شکل گرفته و منافع آن با ارتقای کیفیت زیست‌شهری و بهره‌وری همسو شود. نتایج نشان می‌دهد که ساختار فعلی پاسخگوی پیچیدگی‌های حکمرانی معاصر نیست. در نهایت، شش گزینه اصلاحی شامل &laquo;اصلاح نهادی مبتنی بر چرخه فضیلت&raquo;، &laquo;تمرکززدایی مطلق و تفویض اختیارات به مراجع استانی&raquo;، &laquo;تفویض مشروط با فرجه طلایی یک‌ساله&raquo;، &laquo;مدیریت سه‌سطحی بر پایه مقیاس و کارکرد&raquo;، &laquo;تشکیل شورای‌عالی سیاست‌گذاری سرزمین و توسعه یکپارچه&raquo; و &laquo;اصلاحات ساختاری جزئی و هوشمندانه&raquo; پیشنهاد شده است تا شورای‌عالی شهرسازی و معماری ایران از نهادی واکنشی به مرجعی پویا، پاسخگو و سیاست‌گذار تبدیل شود.</span></span></span></span></span></span><span style="font-size:11pt"><span style="line-height:normal"><span style="direction:rtl"><span style="unicode-bidi:embed"><span style="font-family:Calibri,sans-serif"><span dir="LTR" style="font-size:12.0pt"></span></span></span></span></span></span></div> <div style="text-align: justify;"><span style="font-size:12px;"><span style="font-family:Times New Roman;"><span style="line-height:normal">The Supreme Council of Urban Planning and Architecture of Iran (SCUPAI), as the highest statutory authority responsible for national urban planning and spatial development policies, plays a central role in the country&#39;s spatial governance system. Since its establishment in 1972, the Council has been responsible for formulating national planning policies, approving comprehensive urban development plans, coordinating major planning decisions, and ensuring coherence among governmental institutions involved in spatial development. Owing to its broad legal mandate and cross-sectoral composition, the Council has served as the principal institution for coordinating spatial planning at the national level. However, evidence accumulated over more than five decades indicates that the Council has gradually departed from its original strategic mission and increasingly functions as an institution focused on reviewing detailed planning cases rather than guiding long-term spatial development. It also faces a range of institutional, structural, and procedural challenges, including ambiguities regarding its legal position, limited enforceability of its resolutions, and increasingly complex intergovernmental coordination. Consequently, its effectiveness in addressing emerging urban and territorial issues has declined. Accordingly, this study aims to diagnose the structural deficiencies and institutional position of the Supreme Council in order to identify the need for, and assess the feasibility of, legal and institutional reforms capable of improving its performance within Iran&#39;s contemporary spatial governance framework.</span><br> <span style="line-height:normal">This research adopts a qualitative research design and employs a multi-method analytical strategy to achieve a comprehensive understanding of the Council&#39;s institutional challenges. The study combines documentary and legal analysis with institutional analysis and expert interviews. Documentary analysis covers the evolution of relevant legislation, regulations, executive directives, and official planning documents issued between 1972 and 2025. Institutional analysis is conducted using Scott&#39;s three-dimensional institutional framework, encompassing the regulative, normative, and cultural-cognitive pillars of institutions, thereby enabling a systematic evaluation of both formal legal arrangements and informal institutional dynamics. To complement documentary evidence, semi-structured interviews were conducted with twelve senior experts, policymakers, academics, and former executive managers possessing extensive experience in urban planning, architecture, land management, and public administration. The collected data were analyzed through qualitative content analysis, triangulating documentary evidence with expert perspectives to identify recurring institutional patterns, structural deficiencies, and potential reform pathways.</span><br> <span style="line-height:normal">The findings identify twenty-seven key deficiencies grouped into four interrelated dimensions. The first dimension concerns mission-related deficiencies, including the erosion of the Council&#39;s strategic role, excessive involvement in detailed planning issues, a predominantly reactive approach to policymaking, and insufficient attention to the needs of small cities. The second dimension relates to structural and institutional weaknesses. A major finding is the imbalance between authority and accountability, which has prevented the formation of a virtuous institutional cycle. Although the Council possesses extensive decision-making authority, it bears no proportional responsibility for achieving governmental objectives or for the consequences of its decisions. This imbalance is particularly evident with respect to land provision in accordance with Article 31 of the Constitution and the objectives of Iran&#39;s Seventh National Development Plan. Additional institutional problems include hidden conflicts of interest, overlapping responsibilities with other national councils, ambiguities regarding the legal relationship between the Supreme Council and the Article 5 Commissions, and fragmented institutional responsibilities that weaken intergovernmental coordination. The third dimension includes procedural shortcomings such as the absence of a strong supervisory mechanism, fragmented spatial information systems, inadequate digitalization, and limited evidence-based decision-making capacity. The fourth dimension concerns governance and public participation, including excessive centralization, insufficient engagement with local governments, inadequate transparency, and underutilization of academic expertise in policymaking.</span><br> <span style="line-height:normal">Comparative institutional analysis demonstrates that improving the Council&#39;s effectiveness requires a transition from detailed physical control toward strategic regulation supported by institutional reform based on positive feedback mechanisms. Under such a self-regulating framework, the Council&#39;s authority would increase or decrease according to its performance in fulfilling governmental responsibilities, particularly the provision of land for housing. This dynamic mechanism, grounded in performance-based accountability, ensures that institutional authority is continuously calibrated in response to actual outcomes rather than fixed legal mandates. Linking authority directly to institutional performance would establish a virtuous cycle in which accountability, implementation capacity, urban quality of life, and institutional effectiveness reinforce one another. The findings further indicate that the Council&#39;s current institutional structure is no longer capable of addressing the complexity of contemporary spatial governance. Based on the empirical findings, the study proposes six reform alternatives: (1) institutional reform based on a virtuous cycle; (2) full decentralization through the delegation of authority to provincial institutions; (3) conditional delegation accompanied by a one-year sunset period; (4) a three-level governance model based on spatial scale and functional responsibilities; (5) the establishment of a Supreme Council for Territorial Policy and Integrated Development; and (6) targeted and incremental structural reforms. Collectively, these alternatives aim to transform the Supreme Council from a reactive decision-making body into a dynamic, accountable, strategically oriented, and effective policymaking institution capable of meeting the evolving demands of Iran&#39;s spatial governance system.</span></span></span></div> شورای‌عالی شهرسازی و معماری ایران, حکمرانی شهری, آسیب‌شناسی ساختاری, آسیب‌شناسی نهادی, اصلاحات قانونی, چرخه فضیلت. Supreme Council of Urban Planning and Architecture of Iran (SCUPAI), Urban Governance, Structural Pathology, Institutional Pathology, Legal Reforms, Virtuous Cycle. 0 0 http://jria.iust.ac.ir/browse.php?a_code=A-10-1806-2&slc_lang=fa&sid=1 Reza Motahar رضا مطهر rezamotahar95@gmail.com 1800319475328460010954 1800319475328460010954 Yes Faculty of Architecture and Urban Planning, Iran University of Science and Technology, Tehran, Iran. گروه شهرسازی، دانشکده معماری و شهرسازی، دانشگاه علم ‌و صنعت ایران، تهران، ایران. Mohammad Saleh Shokouhi Behandiid محمدصالح شکوهی بیدهندی shokouhi@iust.ac.ir 1800319475328460010955 1800319475328460010955 No Faculty of Architecture and Urban Planning, Iran University of Science and Technology, Tehran, Iran. گروه شهرسازی، دانشکده معماری و شهرسازی، دانشگاه علم ‌و صنعت ایران، تهران، ایران. Reza Alizadeh رضا علیزاده alizadehreza1995@yahoo.com 1800319475328460010956 1800319475328460010956 No Department of Urban Planning, Faculty of Architecture and Urban Planning, Art University of Isfahan, Isfahan, Iran. دانشکده معماری و شهرسازی، دانشگاه هنر اصفهان، اصفهان، ایران.