新时代的国土空间规划体系重建与制度环境改革
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摘要
在全面推进生态文明建设背景下,急需建立适合中国国情的国土空间开发保护制度和国土空间规划体系,这是新时期建立空间治理体系的重要任务。在国务院新一轮的机构改革背景下,空间类规划的编制职能向自然资源部集中,急需探索和建立全国国土空间规划体系的总体框架和制度环境改革的推进路径。研究表明:国家国土空间规划体系的重建取决于三个方面,一是依赖于部门的职能整合,二是国土空间规划体系的整合与重构,三是依赖于制度环境改革。因此,在机构改革逐步完成的形势下,需要从国土空间规划体系重建与制度环境改革两个路径着手,从国家、省域、市县等层面阐述了中国国土空间规划体系的重建思路,构建五级四类、上下衔接、分级管理的国土空间规划体系。从确定国土空间开发保护制度、专业人才培养、规划资质管理、推进立法等几个方面推进制度环境改革。最后从推进国土空间规划立法、审批程序前置和推进相关法律法规修改完善等方面提出具体举措,以确立国土空间规划的法定地位与统领作用。结合新时期国土空间规划编制,提出了尽快出台国土空间规划编制办法和技术规程、重新调整中国国土空间规划编制的时序安排、加强技术队伍建设等若干建议。
In the context of advancing the construction of ecological civilization in an all-round way, it is urgent to establish a territorial development and protection system supported by the spatial planning system suitable for China's national conditions. Aiming to solve the problems of uncoordinated plans and ununified land classification, based on the major function-oriented zoning in China, the spatial planning system must be established, which should be an important task to establish the spatial governance system in the new era. Based on the analysis of various types of spatial planning conflict, the principal causes of conflict were analyzed. Combined with the compilation of territorial spatial planning in the new period, some suggestions are put forward, such as promulgating the compilation methods and technical regulations of territorial spatial planning as soon as possible, readjusting the timing arrangement of the compilation of territorial spatial planning in China, and strengthening the construction of planning technical team.
In the context of advancing the construction of ecological civilization in an all-round way, it is urgent to establish a territorial development and protection system supported by the spatial planning system suitable for China's national conditions. Aiming to solve the problems of uncoordinated plans and ununified land classification, based on the major function-oriented zoning in China, the spatial planning system must be established, which should be an important task to establish the spatial governance system in the new era. Based on the analysis of various types of spatial planning conflict, the principal causes of conflict were analyzed. Combined with the compilation of territorial spatial planning in the new period, some suggestions are put forward, such as promulgating the compilation methods and technical regulations of territorial spatial planning as soon as possible, readjusting the timing arrangement of the compilation of territorial spatial planning in China, and strengthening the construction of planning technical team.
引文
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[5]Lindhjema H,Mitanib Y.Forest owners'willingness to accept compensation for voluntary conservation:A contingent valuation approach.Journal of Forest Economics,2012,18(4):290-302.
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[10]姚佳,陈江龙,姚士谋.基于新区域主义的空间规划协调研究:以江苏沿海地区为例.中国软科学,2011,(7):102-110.[Yao Jia,Chen Jianglong,Yao Shimou.Research on coordination of spatial plans based on new regionalism:A case study of the coastal region in Jiangsu province.China Soft Science,2011,(7):102-110.]
[11]王向东,刘卫东.中国空间规划体系:现状、问题与重构.经济地理,2012,32(5):7-15.[Wang Xiangdong,Liu Weidong.Spatial planning system in China:Status,problems and reconstruction.Economic Geography,2012,32(5):7-15.]
[12]林坚,陈霄,魏筱.我国空间规划协调问题探讨:空间规划的国际经验借鉴与启示.现代城市研究,2011,(12):15-21.[Lin Jian,Chen Xiao,Wei Xiao.Coordination problems of spatial planning in China:International lessons and experiences.Modern Urban Research,2011,(12):15-21.]
[13]王吉勇.分权下的多规合一:深圳新区发展历程与规划思考.城市发展研究,2013,(1):23-29.[Wang Jiyong.Decentralization and fragmentation:Development stages and trend of metropolitan area in China.Urban Development Studies,2013,(1):23-29.]
[14]唐兰.城市总体规划与土地利用总体规划街接方法研究.天津:天津大学博士学位论文,2012.[Tang Lan.The linkup approach study of overall urban planning and comprehensive land use planning.Tianjin:Doctoral Dissertation of Tianjin University,2012.]
[15]谢英挺,王伟.从“多规合一”到空间规划体系重构.城市规划学刊,2015,(3):15-21.[Xie Yingting,Wang Wei.From"Multiple-plan Coordination"to the reform of the spatial planning system.Urban Planning Forum,2015,(3):15-21.]
[16]严金明,陈昊,夏方舟.“多规合一”与空间规划:认知、导向与路径.中国土地科学,2017,31(1):21-27.[Yan Jinming,Chen Hao,Xia Fangzhou.Cognition,direction and path of future spatial planning based on the background of multiple planning integration.China Land Science,2017,31(1):21-27.]
[17]Michael D K,Frank L,Arreola O.Local markets for payments for environmental services:Can small rural communities self-finance.Water Resource Management,2012,26(13):3689-3704.
[18]刘慧,樊杰,王传胜.欧盟空间规划研究进展及启示.地理研究,2008,27(6):1381-1389.[Liu Hui,Fan Jie,Wang Chuansheng.Progress in the study of European spatial planning and the inspiration to China.Geographical Research,2008,27(6):1381-1389.]
[19]司劲松.构建我国国土空间规划体系的若干思考.宏观经济管理,2015,(12):14-17.[Si Jinsong.Some thought on the construction of China's space planning system.Macroeconomic Management,2015,(12):14-17.]
[20]林坚,宋萌,张安琪.国土空间规划功能定位与实施分析.中国土地,2018,(1):15-17.[Lin Jian,Song Meng,Zhang Anqi.The functional positioning and implementation analysis of land and space planning.China Land,2018,(1):15-17.]
[21]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.]
[22]郝庆.对机构改革背景下空间规划体系构建的思考.地理研究,2018,37(10):1938-1946.[Hao Qing.The construction of spatial planning system under the background of institutional reform.Geographical Research,2018,37(10):1938-1946.]
[23]肖金成,杨开忠,安树伟,等.国家空间规划体系的构建与优化.区域经济评论,2018,(5):1-9.[Xiao Chengjin,Yang Kaizhong,An Shuwei,et al.The construction and optimization of national spatial planning system.Regional Economic Review,2018,(5):1-9.]
[24]顾朝林,曹根榕.论新时代国土空间规划技术创新.北京规划建设,2019,(4):64-70.[Gu Chaolin,Cao Genrong.On the technological innovation of land and space planning in the new era.Beijing Planning Review,2019,(4):64-70.]
[25]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]孟鹏,冯广京,吴大放,等.“多规冲突”根源与“多规融合”原则:基于“土地利用冲突与‘多规融合’研讨会”的思考.中国土地科学,2015,(8):3-9.[Meng Peng,Feng Guangjing,Wu Dafang,et al.Causes of the multiple-planning conflict and principle of multiple-planning integration:Reviews of the Workshop"Land Use Conflicts and Multiple Planning Integration".China Land Sciences,2015,(8):3-9.]
[3]史育龙.主体功能区规划与城乡规划、土地利用总体规划相互关系研究.宏观经济研究,2008,(8):35-40.[Shi Yulong.Interrelationship study on major function oriented zoning,urban rural planning and land-use planning.Macroeconomic Management,2008,(8):35-40.]
[4]沈迟,许景权.“多规合一”的目标体系与接口设计研究:从“三标脱节”到“三标街接”的创新探索.规划师,2015,(2):12-16.[Shen Chi,Xu Jingquan.Vision system and connection design for multiple plans integration:An innovation of three visions.Planners,2005,(2):12-16.]
[5]Lindhjema H,Mitanib Y.Forest owners'willingness to accept compensation for voluntary conservation:A contingent valuation approach.Journal of Forest Economics,2012,18(4):290-302.
[6]魏广君.空间规划协调的理论框架与实践探索.大连:大连理工大学博士学位论文,2012.[Wei Guangjun.Study on the theoretical framework and practical exploration of the spatial planning coordination.Dalian:Doctoral Dissertation of Dalian University of Technology,2012.]
[7]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.Urban Planning Forum,2015,(1):10-14.]
[8]杨荫凯.国家空间规划体系的背景和框架.改革,2014,(8):125-130.[Yang Yinkai.The background and framework of the national spatial planning system.Reform,2014,(8):125-130.]
[9]王磊,沈建法.五年计划/规划、城市规划和土地规划的关系演变山.城市规划学刊,2014,(3):45-51.[Wang Lei,Shen Jianfa.The changing relations among the socio-economic five-year planning,urban-rural planning and land use planning in China.Urban Planning Forum,2014,(3):45-51.]
[10]姚佳,陈江龙,姚士谋.基于新区域主义的空间规划协调研究:以江苏沿海地区为例.中国软科学,2011,(7):102-110.[Yao Jia,Chen Jianglong,Yao Shimou.Research on coordination of spatial plans based on new regionalism:A case study of the coastal region in Jiangsu province.China Soft Science,2011,(7):102-110.]
[11]王向东,刘卫东.中国空间规划体系:现状、问题与重构.经济地理,2012,32(5):7-15.[Wang Xiangdong,Liu Weidong.Spatial planning system in China:Status,problems and reconstruction.Economic Geography,2012,32(5):7-15.]
[12]林坚,陈霄,魏筱.我国空间规划协调问题探讨:空间规划的国际经验借鉴与启示.现代城市研究,2011,(12):15-21.[Lin Jian,Chen Xiao,Wei Xiao.Coordination problems of spatial planning in China:International lessons and experiences.Modern Urban Research,2011,(12):15-21.]
[13]王吉勇.分权下的多规合一:深圳新区发展历程与规划思考.城市发展研究,2013,(1):23-29.[Wang Jiyong.Decentralization and fragmentation:Development stages and trend of metropolitan area in China.Urban Development Studies,2013,(1):23-29.]
[14]唐兰.城市总体规划与土地利用总体规划街接方法研究.天津:天津大学博士学位论文,2012.[Tang Lan.The linkup approach study of overall urban planning and comprehensive land use planning.Tianjin:Doctoral Dissertation of Tianjin University,2012.]
[15]谢英挺,王伟.从“多规合一”到空间规划体系重构.城市规划学刊,2015,(3):15-21.[Xie Yingting,Wang Wei.From"Multiple-plan Coordination"to the reform of the spatial planning system.Urban Planning Forum,2015,(3):15-21.]
[16]严金明,陈昊,夏方舟.“多规合一”与空间规划:认知、导向与路径.中国土地科学,2017,31(1):21-27.[Yan Jinming,Chen Hao,Xia Fangzhou.Cognition,direction and path of future spatial planning based on the background of multiple planning integration.China Land Science,2017,31(1):21-27.]
[17]Michael D K,Frank L,Arreola O.Local markets for payments for environmental services:Can small rural communities self-finance.Water Resource Management,2012,26(13):3689-3704.
[18]刘慧,樊杰,王传胜.欧盟空间规划研究进展及启示.地理研究,2008,27(6):1381-1389.[Liu Hui,Fan Jie,Wang Chuansheng.Progress in the study of European spatial planning and the inspiration to China.Geographical Research,2008,27(6):1381-1389.]
[19]司劲松.构建我国国土空间规划体系的若干思考.宏观经济管理,2015,(12):14-17.[Si Jinsong.Some thought on the construction of China's space planning system.Macroeconomic Management,2015,(12):14-17.]
[20]林坚,宋萌,张安琪.国土空间规划功能定位与实施分析.中国土地,2018,(1):15-17.[Lin Jian,Song Meng,Zhang Anqi.The functional positioning and implementation analysis of land and space planning.China Land,2018,(1):15-17.]
[21]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.]
[22]郝庆.对机构改革背景下空间规划体系构建的思考.地理研究,2018,37(10):1938-1946.[Hao Qing.The construction of spatial planning system under the background of institutional reform.Geographical Research,2018,37(10):1938-1946.]
[23]肖金成,杨开忠,安树伟,等.国家空间规划体系的构建与优化.区域经济评论,2018,(5):1-9.[Xiao Chengjin,Yang Kaizhong,An Shuwei,et al.The construction and optimization of national spatial planning system.Regional Economic Review,2018,(5):1-9.]
[24]顾朝林,曹根榕.论新时代国土空间规划技术创新.北京规划建设,2019,(4):64-70.[Gu Chaolin,Cao Genrong.On the technological innovation of land and space planning in the new era.Beijing Planning Review,2019,(4):64-70.]
[25]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.]
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