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20世纪20年代末,伴随着城市的现代化改造和工商业发展,广州出现了因市区地价上升、人口高度集中而导致的住房短缺和房租高涨等问题。城市低收入阶层包括劳工、失业者、临时性工、小商贩等因无法承受高额的房租而流离失所,广州市政府因此决定建造平民住宅以改变这种状况。平民宫是广州平民住宅的早期形态,市政当局认为平民宫不仅是住处,还应该是改造低下阶层的场所,并认为改造贫民是社会改良的必然。为提供尽可能多的廉价住宿,广州市政府从20世纪30年代开始大规模发展劳工住宅,并相应发展了与之匹配的平民福利设施,从而构建了广州近代平民建筑的完整序列。因应社会救济、社会改良及低成本控制的需要,建筑师发展了与之相应的建筑策略。
In the late 1920s, along with the urban modernization and the development of industry and commerce, Guangzhou faced problems such as housing shortage and rising rent caused by rising urban land prices and high population concentration. Urban low-income groups, including labor, the unemployed, temporary workers, small traders and other displaced due to unbearable high rent, the Guangzhou municipal government decided to build civilian housing to change this situation. The Palace of Civilizations is an early form of civilian housing in Guangzhou. The municipal authorities think that the Palace of Civil Rights is not only a place to live, but also a place to transform the lower classes. It is also believed that reforming the poor is an inevitable result of social reform. In order to provide as many cheap accommodation as possible, the Guangzhou municipal government started the large-scale development of labor housing since the 1930s and correspondingly developed civilian welfare facilities to construct a complete sequence of modern civilian buildings in Guangzhou. In response to the needs of social relief, social improvement and low cost control, architects have developed corresponding building strategies.