基于用途管制视角的中国空间规划体系构建研究
|
摘要
构建合理的空间规划体系是落实国家生态文明战略的重要举措和落实用途管制制度的重要抓手。研究围绕建立和落实用途管制制度的目标提出了中国空间规划体系构建的思路和整体框架、层次与组成、功能与内容,以期为国内空间规划体系的建立提供理论基础。通过文献研究和综合分析的方法分析了中国现行的空间规划体系、发达国家的空间规划体系、中国"多规合一"的试点成果和围绕落实用途管制制度的空间规划体系改革的思路与框架等。研究表明,国内现行的空间规划体系存在众多问题,但可以通过构建更为科学的空间规划体系解决。中国空间规划体系的构建可以借鉴发达国家空间规划体系的成熟做法,吸取国内"多规合一"试点取得的经验。围绕落实用途管制制度构建"全国—省级—地级—县级"4级"国土空间规划+专项规划"的规划组成的空间规划体系,每一级的规划是基于落实用途管制制度且对应于该级政府事权和相关部门事权的规划。"国土空间规划"是全域性国土空间保护与开发的战略性、纲领性和基础性规划,是划定"用途区"的规划;"专项规划"是落实用途管制制度和精细化管理的需要而编制的部门性规划,是"用途区"的保护和开发规划。研究坚持"层次清晰、功能明确、上下衔接"和"宏观、中观、微观,远期、近期,刚性、弹性"相结合的基本要求和原则,构建了基于落实用途管制制度的空间规划体系思路和整体框架、层次与组成、功能与内容,这将为国内空间规划体系和落实用途管制制度构建提供理论基础。
The construction of spatial planning system is an important measure for implementing the national ecological civilization strategy and an important starting point for implementing the use control system. The research puts forward the idea, overall framework, level and composition, function and content of China's spatial planning system around the goal of establishing and implementing the use control system, to provide a theoretical basis for the establishment of China's spatial planning system. Through literature research and comprehensive analysis, this paper analyzes China's current spatial planning system, the spatial planning system of developed countries, the pilot results of China's"multiple planning integration"and the ideas and framework of China's spatial planning system reform around the implementation of the use control system. The research shows that there are many problems in China's current spatial planning system, but it can be solvedby constructing a more scientific spatial planning system. The construction of China's spatial planning systemcan draw on the mature practices of spatial planning system of developed countries and the pilot experiencegained from China's"multiple planning integration". The spatial planning system around the implementationof the use control system is composed of"land space planning + special planning"at four hierarchies of"national-provincial-prefectural-county". The planning at each hierarchy is based on the implementation ofthe use control system and corresponds to the authority of the government and its related departments at thathierarchy. The function of"land space planning"is a strategic, programmatic and basic planning for protectionand development of all regional land space,and it is the planning for delineating"use zones"."Specialplanning"is a departmental planning for implementing the requirements of the use control system andprecision management, and a planning for the protection and development of"use zones". The researchadheres to the basic requirements and principles of"clear hierarchy, clear function, up and down convergence"and"macro, meso, micro, long-term, near-term, rigid and flexible", and constructs a spatial planning systembased on the implementation of the use control system, and put forward the construction idea and overallframework, level and composition, function and content of the system, which will provide a theoretical basis for the construction of the domestic spatial planning system and the implementation of the use control system.
The construction of spatial planning system is an important measure for implementing the national ecological civilization strategy and an important starting point for implementing the use control system. The research puts forward the idea, overall framework, level and composition, function and content of China's spatial planning system around the goal of establishing and implementing the use control system, to provide a theoretical basis for the establishment of China's spatial planning system. Through literature research and comprehensive analysis, this paper analyzes China's current spatial planning system, the spatial planning system of developed countries, the pilot results of China's"multiple planning integration"and the ideas and framework of China's spatial planning system reform around the implementation of the use control system. The research shows that there are many problems in China's current spatial planning system, but it can be solvedby constructing a more scientific spatial planning system. The construction of China's spatial planning systemcan draw on the mature practices of spatial planning system of developed countries and the pilot experiencegained from China's"multiple planning integration". The spatial planning system around the implementationof the use control system is composed of"land space planning + special planning"at four hierarchies of"national-provincial-prefectural-county". The planning at each hierarchy is based on the implementation ofthe use control system and corresponds to the authority of the government and its related departments at thathierarchy. The function of"land space planning"is a strategic, programmatic and basic planning for protectionand development of all regional land space,and it is the planning for delineating"use zones"."Specialplanning"is a departmental planning for implementing the requirements of the use control system andprecision management, and a planning for the protection and development of"use zones". The researchadheres to the basic requirements and principles of"clear hierarchy, clear function, up and down convergence"and"macro, meso, micro, long-term, near-term, rigid and flexible", and constructs a spatial planning systembased on the implementation of the use control system, and put forward the construction idea and overallframework, level and composition, function and content of the system, which will provide a theoretical basis for the construction of the domestic spatial planning system and the implementation of the use control system.
引文
[1]万膑莲,瞿国方.我国空间规划体系的内涵、发展与历史演变[A].//见:中国城市规划学会.规划60年:成就与调整——2016年中国城市规划年会论文集(03城市规划历史与理论)[C].北京:中国建筑工业出版社,2016.
[2]谢英挺.从多规合一到空间规划体系重构[J].城市规划学刊,2015,3:15-21.
[3]严金明,陈昊,夏方舟.“多规合一”与空间规划:认知、导向与路径[J].中国土地科学,2017,31(1):21-27.
[4]司劲孙.构建我国国土空间规划体系的若干思考[J].宏观经济管理,2015,12:14-17.
[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[J].地理科学进展,2016,5:529-536.
[6]宋拾平.我国空间规划体系创新研究[D].长沙:湖南师范大学,2011.
[7]林坚,许超诣.土地发展权、空间管制与规划协同[J].城市规划,2014,38(1):26-34.
[8]黄晨.从部门事权与规划内容相对应的角度思考城市规划体系的改进[J].规划师,2008,24(10):57-61.
[9]杨保军,张菁,董珂.空间规划体系下城市总体规划作用的再认识[J].城市规划,2016,3:9-14.
[10]吴殿廷,刘睿文,吴铮争,等.日本新国土规划考察和辽宁省新一轮国土规划的初步设想[J].地理研究,2009,28(3):761-770.
[11]郝庆,封志明,袁国华.省级国土空间规划编制的几点思考[J].中国国土资源经济,2018,1:29-33.
[12]张兵,胡耀文.探索科学的空间规划——基于海南省总体规划和“多规合一”实践的思考[J].规划师,2017,33(2):19-23.
[13]谢剑锋.我国市县推进“多规合一”的探索及反思[J].环境保护,2015,43(3-4):31-36.
[14]提升国土空间治理能力——全国省级国土规划编制研讨会综述[J].南方国土资源,2017,8:28-29.
[15]吴良镛,武廷海.从战略规划到行动计划——中国城市规划体制初论[J].城市规划,2003,12:13-17.
[16]王磊,沈建法.空间规划政策在中国五年计划/规划体系中的演变[J].地理科学进展,2013,32(8):1195-1206.
[17]韩青.空间规划协调理论研究综述[J].城市问题,2010,4:28-30.
[18]杨保军.城市规划30年回顾与展望[J].城市规划学刊,2010,1:14-23.
[19]朱才斌.城市总体规划与土地利用总体规划的协调机制[J].城市规划汇刊,1999,4:10-13.
[20]董珂,徐颖.从行政和技术理性看全国空间规划体系的建构[A].//见:中国城市规划学会.新常态:传承与变革——2015中国城市规划年会论文集[C].北京:中国建筑工业出版社,2015.
[21]黄逸鸣,陈昌勇,熊丽芳.基于规划弹性的广州市原萝岗区“三规合一”规划[J].规划师,2016,32(6):65-71.
[22]吴志强.德国空间规划体系及其发展动态解析[J].国外城市规划,1999,4:2-5.
[23]张伟,刘毅,刘洋.国外空间规划研究与实践的新动向及对我国的启示[J].地理科学进展,2005,24(3):79-90.
[24]张弢,陈烈,慈福义.国外空间规划特点及其对我国的借鉴[J].世界地理研究,2006,15(1):56-62.
[25]提升国土空间治理能力——全国省级国土规划编制研讨会综述[J].南方国土资源,2017,8:28-29.
[26]黄征学,滕飞,王丽.深入推进省级国土空间规划试点的建议——以宁夏国土空间规划试点为例[J/OL].[2018-11-08].https://doi.org/10.19676/j.cnki.1672-6995.0000157.
[27]何冬华.空间规划体系中的宏观治理与地方发展的对话——来自国家四部委“多规合一”试点的案例启示[J].规划师,2017,2:12-18.
[2]谢英挺.从多规合一到空间规划体系重构[J].城市规划学刊,2015,3:15-21.
[3]严金明,陈昊,夏方舟.“多规合一”与空间规划:认知、导向与路径[J].中国土地科学,2017,31(1):21-27.
[4]司劲孙.构建我国国土空间规划体系的若干思考[J].宏观经济管理,2015,12:14-17.
[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[J].地理科学进展,2016,5:529-536.
[6]宋拾平.我国空间规划体系创新研究[D].长沙:湖南师范大学,2011.
[7]林坚,许超诣.土地发展权、空间管制与规划协同[J].城市规划,2014,38(1):26-34.
[8]黄晨.从部门事权与规划内容相对应的角度思考城市规划体系的改进[J].规划师,2008,24(10):57-61.
[9]杨保军,张菁,董珂.空间规划体系下城市总体规划作用的再认识[J].城市规划,2016,3:9-14.
[10]吴殿廷,刘睿文,吴铮争,等.日本新国土规划考察和辽宁省新一轮国土规划的初步设想[J].地理研究,2009,28(3):761-770.
[11]郝庆,封志明,袁国华.省级国土空间规划编制的几点思考[J].中国国土资源经济,2018,1:29-33.
[12]张兵,胡耀文.探索科学的空间规划——基于海南省总体规划和“多规合一”实践的思考[J].规划师,2017,33(2):19-23.
[13]谢剑锋.我国市县推进“多规合一”的探索及反思[J].环境保护,2015,43(3-4):31-36.
[14]提升国土空间治理能力——全国省级国土规划编制研讨会综述[J].南方国土资源,2017,8:28-29.
[15]吴良镛,武廷海.从战略规划到行动计划——中国城市规划体制初论[J].城市规划,2003,12:13-17.
[16]王磊,沈建法.空间规划政策在中国五年计划/规划体系中的演变[J].地理科学进展,2013,32(8):1195-1206.
[17]韩青.空间规划协调理论研究综述[J].城市问题,2010,4:28-30.
[18]杨保军.城市规划30年回顾与展望[J].城市规划学刊,2010,1:14-23.
[19]朱才斌.城市总体规划与土地利用总体规划的协调机制[J].城市规划汇刊,1999,4:10-13.
[20]董珂,徐颖.从行政和技术理性看全国空间规划体系的建构[A].//见:中国城市规划学会.新常态:传承与变革——2015中国城市规划年会论文集[C].北京:中国建筑工业出版社,2015.
[21]黄逸鸣,陈昌勇,熊丽芳.基于规划弹性的广州市原萝岗区“三规合一”规划[J].规划师,2016,32(6):65-71.
[22]吴志强.德国空间规划体系及其发展动态解析[J].国外城市规划,1999,4:2-5.
[23]张伟,刘毅,刘洋.国外空间规划研究与实践的新动向及对我国的启示[J].地理科学进展,2005,24(3):79-90.
[24]张弢,陈烈,慈福义.国外空间规划特点及其对我国的借鉴[J].世界地理研究,2006,15(1):56-62.
[25]提升国土空间治理能力——全国省级国土规划编制研讨会综述[J].南方国土资源,2017,8:28-29.
[26]黄征学,滕飞,王丽.深入推进省级国土空间规划试点的建议——以宁夏国土空间规划试点为例[J/OL].[2018-11-08].https://doi.org/10.19676/j.cnki.1672-6995.0000157.
[27]何冬华.空间规划体系中的宏观治理与地方发展的对话——来自国家四部委“多规合一”试点的案例启示[J].规划师,2017,2:12-18.