Planning is a wider use of public management means and methods, at the same time, the role of planning can play a different role, there is a planning can play an important role and planning inevitable failure of the two opposite views. How to scientific understanding of the planning? What is the internal mechanism of planning ? This paper, starting from the subject  and the object of planning, established the analysis framework of "function- knowledge" based on the function of the main body of planning and the knowledge type needed by the planning  object. It distinguishes four kinds of planning types. The research tries to enrich the cognition of planning and make the planning "something is not". In order to ensure the actual effect of the planning, a new understanding angle is put forward。

作为政策工具的规划是现代社会运用较广的公共管理手段和方式，而对于其的有效性，却存在着其能发挥重要作用或效果注定欠佳两种近乎相抵观点。在“规划先行”的今天，如何进一步科学认识国内真实世界中的这种应用知识的制度安排？其“可能与否”的内在机理是什么？本文在已有研究基础上，构建了基于规划主体的职能范围、规划客体所涉知识类型的“职能-知识”分析框架，以此区分了顶层约束型、在地情景型、支持引导型及共识仪式型等四种规划“理想类型”；进一步分析各自的适用范围、功能定位、规划要义、规划主体及方式方法等；最后提出优先做好强核心职能且最具预测性类规划等优化现行规划的建议。研究提出认识“规划之手”内在有效性的一种新分析框架，能增进对其的“元认知”，希望为本土规划编制“有所为有所不为”从而更好发挥作为重要知识型政策的实际功能有所贡献。