国土空间规划体系与不同层级规划间的衔接
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摘要
有序、高效的空间规划体系是现代化治理体系和治理能力的重要内容。当前,中国不同空间性规划打架、上下层级规划不衔接的问题突出,多规合一的空间规划仍处于改革和试点的阶段。回顾中国空间规划体系建构的阶段过程,按照空间层级和规划类型,提出适合中国国土面积和区域单元特征的中国特色空间规划体系,结合福建和贵州省空间规划试点案例,梳理空间规划体系中5个层次的衔接内容,包括"三区三线"底图与空间布局总图的衔接、"三区三线"底图与专项分幅总图的衔接、空间布局总图与专项分幅总图的衔接、专项分幅总图与部门专项规划的衔接、上下层级规划之间的相互衔接。同时从数据基础、学科体系、人才培养、规划流程4个方面指出未来进一步健全和完善空间规划体系应该克服的难点问题和努力方向。
An orderly and efficient spatial planning system is an important part of the modern governance system and governance capacity. At present, the problems of different spatial planning fights in China and the non-convergence of planning at the upper and lower levels are prominent. The spatial planning of convergence and integration with each other is still in the stage of reform and pilot. This paper reviews the stage process of the development of China's spatial planning system. According to the spatial hierarchy and planning type, this paper proposes a spatial planning system with Chinese characteristics that suit China's land area and regional unit conditions. Combined with the pilot cases of spatial planning in Fujian and Guizhou provinces, five types of convergence in the spatial planning system are summarized,including the connection of the "Three Zones and Three Lines" Base Map and the General Layout of the Spatial Planning, the connection of the "Three Zones and Three Lines" Base Map and the Overall Layout of the Special Planning, the connection of the General Layout of the Spatial Planning and the Overall Layout of the Special Planning, the connection of the Overall Layout of the Special Planning and the Special Planning made by various professional departments of the government, and the coordination between the upper and lower levels of spatial planning. Finally, this paper points out the difficulties to be overcome and efforts that should be made in the future to further improve and perfect the spatial planning system from four aspects, i.e., the data base, subject system, personnel training and planning process.
An orderly and efficient spatial planning system is an important part of the modern governance system and governance capacity. At present, the problems of different spatial planning fights in China and the non-convergence of planning at the upper and lower levels are prominent. The spatial planning of convergence and integration with each other is still in the stage of reform and pilot. This paper reviews the stage process of the development of China's spatial planning system. According to the spatial hierarchy and planning type, this paper proposes a spatial planning system with Chinese characteristics that suit China's land area and regional unit conditions. Combined with the pilot cases of spatial planning in Fujian and Guizhou provinces, five types of convergence in the spatial planning system are summarized,including the connection of the "Three Zones and Three Lines" Base Map and the General Layout of the Spatial Planning, the connection of the "Three Zones and Three Lines" Base Map and the Overall Layout of the Special Planning, the connection of the General Layout of the Spatial Planning and the Overall Layout of the Special Planning, the connection of the Overall Layout of the Special Planning and the Special Planning made by various professional departments of the government, and the coordination between the upper and lower levels of spatial planning. Finally, this paper points out the difficulties to be overcome and efforts that should be made in the future to further improve and perfect the spatial planning system from four aspects, i.e., the data base, subject system, personnel training and planning process.
引文
[1]樊杰.我国空间治理体系现代化在“十九大”后的新态势.中国科学院院刊,2017,32(4):396-404.[Fan Jie.Perspective of China's spatial governance system after 19th CPC National Congress.Bulletin of Chinese Academy of Sciences,2017,32(4):396-404.]
[2]樊杰,蒋子龙,陈东.空间布局协同规划的科学基础与实践策略.城市规划,2014,38(1):16-25.[Fan Jie,Jiang Zilong,Chen Dong.Scientific foundation and practical strategies of collaborative planning for spatial layout.City Planning Review,2014,38(1):16-25.]
[3]刘慧,樊杰,李扬.“美国2050”空间战略规划及启示.地理研究,2013,32(1):90-98.[Liu Hui,Fan Jie,Li Yang."America 2050"strategic spatial planning and its inspiration to China.Geographical Research,2013,32(1):90-98.]
[4]杨伟民.规划体制改革的理论探索.北京:中国物价出版社,2003.[Yang Weiming.The Theoretical Exploration of the Reform of Planning System.Beijing:China Prices Press,2003.]
[5]刘彦随,王介勇.转型发展期“多规合一”理论认知与技术方法.地理科学进展,2016,35(5):529-536.[Liu Yansui,Wang Jieyong.Theoretical analysis and technical methods of'multiple planning integration'in the rural to urban transition period in China.Progress in Geography,2016,35(5):529-536.]
[6]方创琳,杨俊宴,匡文慧.京津冀协同发展中推进雄安新区“多规合一”的基本策略与建议.中国科学院院刊,2017,32(11):1192-1198.[Fang Chuanglin,Yang Junyan,Kuang Wenhui.Basic schemes and suggestions of multi-planning integration in progress of Xiongan new area planning.Journal of the Chinese Academy of Sciences,2017,32(11):1192-1198.]
[7]郭锐,樊杰.城市群规划多规协同状态分析与路径研究.城市规划学刊,2015,(2):24-30.[Guo Rui,Fan Jie.An analysis and research of multiple plan coordination for city clusters current situations and the future paths.City Planning Forum,2015,(2):24-30.]
[8]顾朝林.论中国“多规”分立及其演化与融合问题.地理研究,2015,34(4):601-613.[Gu Chaolin.On the separation of China's spatial plans and their evolution and integration.Geographical Research,2015,34(4):601-613.]
[9]陈雯,孙伟,陈江龙.我国市县规划体系矛盾解析与“多规合一”路径探究.地理研究,2017,36(9):1603-1612.[Chen Wen,Sun Wei,Chen Jianglong.Decoding the conflicts within the planning system and approaches to multi-plan integration at the county and municipal level in China.Geographical Research,2017,36(9):1603-1612.]
[10]林坚,陈诗弘,许超诣,等.空间规划的博弈分析.城市规划学刊,2015(1):10-14.[Lin Jian,Chen Shihong,Xu Chaoyi,et al.Game analysis of spatial planning.City Planning Forum,2015,(1):10-14.]
[11]樊杰.中国主体功能区划方案.地理学报,2015,70(2):186-201.[Fan Jie.Draft of major function oriented zoning of China.Acta Geographica Sinica,2015,70(2):186-201.]
[12]樊杰.我国国土空间开发保护格局优化配置理论创新与“十三五”规划的应对策略.中国科学院院刊,2016,31(1):1-12.[Fan Jie.Theoretical innovation in optimization of protection and development of China's territorial space and coping strategy of 13th Five-Year Plan.Journal of the Chinese Academy of Sciences,2016,31(1):1-12.]
[13]樊杰,郭锐,陈东.基于五个新发展理念对“十三五”空间规划重点取向的探讨.城市规划学刊.2016,(2):10-17.[Fan Jie,Guo Rui,Chen Dong.The implications of five new development concepts on the main orientation of spatial planning in the 13th Five-Year Plan period.City Planning Forum,2016,(2):10-17.]
[14]胡序威.中国区域规划的演变与展望.地理学报,2006,61(6):585-592.[Hu Xuwei.Evolution and prospect of China's regional planning.Acta Geographica Sinica,2006,61(6):585-592.]
[15]张泉,刘剑.城镇体系规划改革创新与“三规合一”的关系:从“三结构一网络”谈起.城市规划,2014,38(10):13-27.[Zhang Quan,Liu Jian.Relationship between the reform and innovation of urban system planning and three-planning integration:Three structures and network in urban system planning.City Planning Review,2014,38(10):13-27.]
[16]相伟,樊杰.新时期区域综合规划中的“协调”问题初探:基于京津冀都市圈区域综合规划的思考.重庆建筑大学学报,2006,28(6):1-4.[Xiang Wei,Fan Jie.Primary approach to the harmonization of regional overall planning at new phase thoughts of Jing-Jin-Ji metropolitan regional overall planning.Journal of Chongqing Jianzhu University,2006,28(6):1-4.]
[17]陆大道.区域发展及其空间结构.北京:科学出版社,1995.[Lu Dadao.Regional Development and Its Spatial Structure.Beijing:Science Press,1995.]
[18]桂德竹,王硕,张成成.“多规合一”空间规划底图编制方法.测绘与空间地理信息,2016,39(8):20-23.[Gui Dezhu,Wang Shuo,Zhang Chengcheng.The method of multiple spatial planning integration basic map.Geomatics&Spatial Information Technology,2016,39(8):20-23.]
[19]樊杰,郭锐.面向“十三五”创新区域治理体系的若干重点问题.经济地理,2015,35(1):1-6.[Fan Jie,Guo Rui.Discussing some core issues of innovated regional governance system oriented to the Thirteenth National Five-Year Plan period.Economic Geography,2015,35(1):1-6.]
[20]Fan Jie.How Chinese Human Geographers Influence Decision Makers&Society.Beijing:The Commercial Press,2016.
[2]樊杰,蒋子龙,陈东.空间布局协同规划的科学基础与实践策略.城市规划,2014,38(1):16-25.[Fan Jie,Jiang Zilong,Chen Dong.Scientific foundation and practical strategies of collaborative planning for spatial layout.City Planning Review,2014,38(1):16-25.]
[3]刘慧,樊杰,李扬.“美国2050”空间战略规划及启示.地理研究,2013,32(1):90-98.[Liu Hui,Fan Jie,Li Yang."America 2050"strategic spatial planning and its inspiration to China.Geographical Research,2013,32(1):90-98.]
[4]杨伟民.规划体制改革的理论探索.北京:中国物价出版社,2003.[Yang Weiming.The Theoretical Exploration of the Reform of Planning System.Beijing:China Prices Press,2003.]
[5]刘彦随,王介勇.转型发展期“多规合一”理论认知与技术方法.地理科学进展,2016,35(5):529-536.[Liu Yansui,Wang Jieyong.Theoretical analysis and technical methods of'multiple planning integration'in the rural to urban transition period in China.Progress in Geography,2016,35(5):529-536.]
[6]方创琳,杨俊宴,匡文慧.京津冀协同发展中推进雄安新区“多规合一”的基本策略与建议.中国科学院院刊,2017,32(11):1192-1198.[Fang Chuanglin,Yang Junyan,Kuang Wenhui.Basic schemes and suggestions of multi-planning integration in progress of Xiongan new area planning.Journal of the Chinese Academy of Sciences,2017,32(11):1192-1198.]
[7]郭锐,樊杰.城市群规划多规协同状态分析与路径研究.城市规划学刊,2015,(2):24-30.[Guo Rui,Fan Jie.An analysis and research of multiple plan coordination for city clusters current situations and the future paths.City Planning Forum,2015,(2):24-30.]
[8]顾朝林.论中国“多规”分立及其演化与融合问题.地理研究,2015,34(4):601-613.[Gu Chaolin.On the separation of China's spatial plans and their evolution and integration.Geographical Research,2015,34(4):601-613.]
[9]陈雯,孙伟,陈江龙.我国市县规划体系矛盾解析与“多规合一”路径探究.地理研究,2017,36(9):1603-1612.[Chen Wen,Sun Wei,Chen Jianglong.Decoding the conflicts within the planning system and approaches to multi-plan integration at the county and municipal level in China.Geographical Research,2017,36(9):1603-1612.]
[10]林坚,陈诗弘,许超诣,等.空间规划的博弈分析.城市规划学刊,2015(1):10-14.[Lin Jian,Chen Shihong,Xu Chaoyi,et al.Game analysis of spatial planning.City Planning Forum,2015,(1):10-14.]
[11]樊杰.中国主体功能区划方案.地理学报,2015,70(2):186-201.[Fan Jie.Draft of major function oriented zoning of China.Acta Geographica Sinica,2015,70(2):186-201.]
[12]樊杰.我国国土空间开发保护格局优化配置理论创新与“十三五”规划的应对策略.中国科学院院刊,2016,31(1):1-12.[Fan Jie.Theoretical innovation in optimization of protection and development of China's territorial space and coping strategy of 13th Five-Year Plan.Journal of the Chinese Academy of Sciences,2016,31(1):1-12.]
[13]樊杰,郭锐,陈东.基于五个新发展理念对“十三五”空间规划重点取向的探讨.城市规划学刊.2016,(2):10-17.[Fan Jie,Guo Rui,Chen Dong.The implications of five new development concepts on the main orientation of spatial planning in the 13th Five-Year Plan period.City Planning Forum,2016,(2):10-17.]
[14]胡序威.中国区域规划的演变与展望.地理学报,2006,61(6):585-592.[Hu Xuwei.Evolution and prospect of China's regional planning.Acta Geographica Sinica,2006,61(6):585-592.]
[15]张泉,刘剑.城镇体系规划改革创新与“三规合一”的关系:从“三结构一网络”谈起.城市规划,2014,38(10):13-27.[Zhang Quan,Liu Jian.Relationship between the reform and innovation of urban system planning and three-planning integration:Three structures and network in urban system planning.City Planning Review,2014,38(10):13-27.]
[16]相伟,樊杰.新时期区域综合规划中的“协调”问题初探:基于京津冀都市圈区域综合规划的思考.重庆建筑大学学报,2006,28(6):1-4.[Xiang Wei,Fan Jie.Primary approach to the harmonization of regional overall planning at new phase thoughts of Jing-Jin-Ji metropolitan regional overall planning.Journal of Chongqing Jianzhu University,2006,28(6):1-4.]
[17]陆大道.区域发展及其空间结构.北京:科学出版社,1995.[Lu Dadao.Regional Development and Its Spatial Structure.Beijing:Science Press,1995.]
[18]桂德竹,王硕,张成成.“多规合一”空间规划底图编制方法.测绘与空间地理信息,2016,39(8):20-23.[Gui Dezhu,Wang Shuo,Zhang Chengcheng.The method of multiple spatial planning integration basic map.Geomatics&Spatial Information Technology,2016,39(8):20-23.]
[19]樊杰,郭锐.面向“十三五”创新区域治理体系的若干重点问题.经济地理,2015,35(1):1-6.[Fan Jie,Guo Rui.Discussing some core issues of innovated regional governance system oriented to the Thirteenth National Five-Year Plan period.Economic Geography,2015,35(1):1-6.]
[20]Fan Jie.How Chinese Human Geographers Influence Decision Makers&Society.Beijing:The Commercial Press,2016.
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