治理现代化目标下国家空间规划体系的变迁与重构
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摘要
基于治理理论,从中央—地方以及政府—市场关系维度,分别揭示了西方发达国家和我国空间规划体系在国家治理变迁影响下的演变历程与总体趋向。国土空间规划是我国面向生态文明建设的重要制度变革与治理体系重构的举措,但是面向国家治理现代化目标,未来我国国土空间规划体系再建构还必须重视三个方面的问题:(1)充分理解"国土空间"的多元价值属性,重视国土空间规划对多元目标的统筹平衡,不能把空间简单化为"自然资源"载体,谨防规划蜕化为单纯的"资源环境管控技术工具";(2)集权与分权相结合,建立与政府事权相对应、层级差异有序的空间规划体系;(3)高度重视规划研究和非法定规划的作用,为空间规划的科学性提供有力支撑。
From the perspective of intergovernmental relations and government-market relations, this paper, based on the governance theory, analyzes the development process and overall trend of both Western developed countries' and China's spatial planning system under the influence of national governance changes. While spatial planning has become an important institutional reform and reconstruction system for China's ecological civilization construction,this paper hold the opinion that, under the goal of modern national governance, the reconstruction of the future spatial planning system should pay more attention to the following three questions:(1) The multi-attribute nature of "land space" should be fully understood, while the overall balance of spatial planning for multiple objectives should be emphasized;(2) A spatial planning system that corresponds to government affairs should be established;(3)Planning researches and non-statutory planning should be integrated into the spatial planning system to enhance the scientific nature of spatial planning.
From the perspective of intergovernmental relations and government-market relations, this paper, based on the governance theory, analyzes the development process and overall trend of both Western developed countries' and China's spatial planning system under the influence of national governance changes. While spatial planning has become an important institutional reform and reconstruction system for China's ecological civilization construction,this paper hold the opinion that, under the goal of modern national governance, the reconstruction of the future spatial planning system should pay more attention to the following three questions:(1) The multi-attribute nature of "land space" should be fully understood, while the overall balance of spatial planning for multiple objectives should be emphasized;(2) A spatial planning system that corresponds to government affairs should be established;(3)Planning researches and non-statutory planning should be integrated into the spatial planning system to enhance the scientific nature of spatial planning.
引文
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[3]孙鹏,曾刚.基于新区域主义视角的我国地域主体功能区规划解读.改革与战略, 2009, 25(11):95-98.[SUN P,ZENG G. On the development priority zone planning in China based on new regionalism. Reformation&Strategy,2009, 25(11):95-98.]
[4]王玉波.中央与地方政府土地利用总体规划博弈治理研究.南京农业大学学报:社会科学版, 2011, 11(4):73-79.[WANG Y B. On governing land use planning gaming between central and local governments. Journal of Nanjing Agricultural University:Social Sciences Edition, 2011, 11(4):73-79.]
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[11]俞可平.走向国家治理现代化:论中国改革开放后的国家、市场与社会关系.当代世界, 2014,(10):24-25.[YU K P.Towards the modernization of state governance:On the relationship between state, market and society after China's reform and opening-up. Contemporary World, 2014,(10):24-25.]
[12]胡序威.中国区域规划的演变与展望.城市规划, 2006, 61(6):585-592.[HU X W. Evolution and prospect of China's regional planning. Urban Planning, 2006, 61(6):585-592.]
[13] WU F. Planning for Growth:Urban and Regional Planning in China. New York:Routledge, 2015:79-118.
[14]张京祥,吴缚龙,崔功豪.城市发展战略规划:透视激烈竞争环境中的地方政府管治.人文地理, 2004, 19(3):1-5.[ZHANG J X, WU F L, CUI G H. Urban development strategic planning:A perspective of the local government's governance in the competitive situations. Human Geography, 2004, 19(3):1-5.]
[15]陈坤秋,龙花楼.中国土地市场对城乡融合发展的影响.自然资源学报, 2019, 34(2):221-235.[CHEN K Q, LONG H L. Impacts of land market on urban-rural integrated development in China. Journal of Natural Resources, 2019, 34(2):221-235.]
[16]张京祥,罗震东.中国当代城乡规划思潮.南京:东南大学出版社, 2013:165-166.[ZHANG J X, LUO Z D. New China Urban and Rural Planning Thoughts. Nanjing:Southeast University Press, 2013:165-166.]
[17]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.规划师,2017, 33(2):12-18.[HE D H. Coordination between the macro governance and local development in spatial planning system:An enlightenment from multi-plans experimental cities. Planners, 2017, 33(2):12-18.]
[18]胡鞍钢.中国国家治理现代化的特征与方向.国家行政学院学报, 2014,(3):4-10.[HU A G. Characteristics and directions of China's national governance modernization. Journal of Chinese Academy of Governance, 2014,(3):4-10.]
[19]林坚,文爱平.林坚:重构中国特色空间规划体系.北京规划建设, 2018,(4):184-187.[LIN J, WEN A P. LIN J:Reconstructing the spatial planning system with Chinese characteristics. Beijing Planning Review, 2018,(4):184-187.]
[20]张京祥,林怀策,陈浩.中国空间规划体系40年的变迁与改革.经济地理, 2018, 38(7):1-6.[ZHANG J X, LIN H C,CHEN H. 40-Year changes and reforms of China's spatial planning system. Economic Geography, 2018, 38(7):1-6.]
[21]杨保军.城市规划30年回顾与展望.城市规划学刊, 2010,(1):14-23.[YANG B J. Urban planning 30 years:Reviews and prospects. Urban Planning Forum, 2010,(1):14-23.]
[22]张京祥,陈浩.空间治理:中国城乡规划转型的政治经济学.城市规划, 2014, 38(11):9-15.[ZHANG J X, CHEN H.Spacial governance:Political economy of China's urban and rural planning transformation. Urban Planning, 2014, 38(11):9-15.]
[23]沈镭,张红丽,钟帅,等.新时代下中国自然资源安全的战略思考.自然资源学报, 2018, 33(5):721-734.[SHEN L,ZHANG H L, ZHONG S, et al. Strategic thinking on the security of natural resources of China in the New Era. Journal of Natural Resources, 2018, 33(5):721-734.]
[24]梁鹤年.再谈“城市人”:以人为本的城镇化.城市规划, 2014, 38(9):64-75.[LIANG H N. Further discussion on homourbanicus:Human-based urbanization. Urban Planning, 2014, 38(9):64-75.]
[25]张京祥,庄林德.管治及城市与区域管治:一种新制度性规划理念.城市规划, 2000, 24(6):36-39.[ZHANG J X,ZHUANG L D. Governance and governance for city and region. Urban Planning, 2000, 24(6):36-39.]
[26]谢英挺.基于治理能力提升的空间规划体系构建.规划师, 2017, 33(2):24-27.[XIE Y T. Spatial planning system construction for the improvement of governance capability. Planners, 2017, 33(2):24-27.]
[27]李和平,余廷墨,张海龙.非法定规划的实践价值和技术策略.规划师, 2012, 28(1):61-65.[LI H P, YU T M,ZHANG H L. Non-statutory planning's value and techniques. Planners, 2012, 28(1):61-65.]
[2]中华人民共和国中央人民政府.中共中央国务院关于建立国土空间规划体系并监督实施的若干意见. http://www.gov.cn/zhengce/2019-05-23/content_5394187.htm, 2019-05-23.[The Central People's Government of the PRC. Several Opinions of the Central Committee of the Communist Party of China on Establishing a Land and Space Planning System and Supervising Implementation. http://www.gov.cn/zhengce/2019-05-23/content_5394187.htm, 2019-05-23.]
[3]孙鹏,曾刚.基于新区域主义视角的我国地域主体功能区规划解读.改革与战略, 2009, 25(11):95-98.[SUN P,ZENG G. On the development priority zone planning in China based on new regionalism. Reformation&Strategy,2009, 25(11):95-98.]
[4]王玉波.中央与地方政府土地利用总体规划博弈治理研究.南京农业大学学报:社会科学版, 2011, 11(4):73-79.[WANG Y B. On governing land use planning gaming between central and local governments. Journal of Nanjing Agricultural University:Social Sciences Edition, 2011, 11(4):73-79.]
[5] CASTELLS M. City, Class and Power. London:Palgrave, 1978:174-182.
[6]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 J, CHEN S H, XU C Y, et al.Game analysis of spatial planning. Urban Planning Forum, 2015,(1):10-14.]
[7] FRIEDMANN J. Strategic spatial planning and the longer range. Planning Theory&Practice, 2004, 5(1):49-67.
[8] HALL P, TEWDWR-JONES M. Urban and Regional Planning. New York:Routledge, 2010:108-155.
[9] NADIN V. Regional Planning in the UK:From land use to spatial planning. http://hdl.handle.net/2099.2/1117, 2009-04-23.
[10]罗超,王国恩,孙靓雯.中外空间规划发展与改革研究综述.国际城市规划, 2018, 33(5):121-129.[LUO C, WANG G EN, SUN L W. Research review of spatial planning development and reform in China and abroad. Urban Planning International, 2018, 33(5):121-129.]
[11]俞可平.走向国家治理现代化:论中国改革开放后的国家、市场与社会关系.当代世界, 2014,(10):24-25.[YU K P.Towards the modernization of state governance:On the relationship between state, market and society after China's reform and opening-up. Contemporary World, 2014,(10):24-25.]
[12]胡序威.中国区域规划的演变与展望.城市规划, 2006, 61(6):585-592.[HU X W. Evolution and prospect of China's regional planning. Urban Planning, 2006, 61(6):585-592.]
[13] WU F. Planning for Growth:Urban and Regional Planning in China. New York:Routledge, 2015:79-118.
[14]张京祥,吴缚龙,崔功豪.城市发展战略规划:透视激烈竞争环境中的地方政府管治.人文地理, 2004, 19(3):1-5.[ZHANG J X, WU F L, CUI G H. Urban development strategic planning:A perspective of the local government's governance in the competitive situations. Human Geography, 2004, 19(3):1-5.]
[15]陈坤秋,龙花楼.中国土地市场对城乡融合发展的影响.自然资源学报, 2019, 34(2):221-235.[CHEN K Q, LONG H L. Impacts of land market on urban-rural integrated development in China. Journal of Natural Resources, 2019, 34(2):221-235.]
[16]张京祥,罗震东.中国当代城乡规划思潮.南京:东南大学出版社, 2013:165-166.[ZHANG J X, LUO Z D. New China Urban and Rural Planning Thoughts. Nanjing:Southeast University Press, 2013:165-166.]
[17]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.规划师,2017, 33(2):12-18.[HE D H. Coordination between the macro governance and local development in spatial planning system:An enlightenment from multi-plans experimental cities. Planners, 2017, 33(2):12-18.]
[18]胡鞍钢.中国国家治理现代化的特征与方向.国家行政学院学报, 2014,(3):4-10.[HU A G. Characteristics and directions of China's national governance modernization. Journal of Chinese Academy of Governance, 2014,(3):4-10.]
[19]林坚,文爱平.林坚:重构中国特色空间规划体系.北京规划建设, 2018,(4):184-187.[LIN J, WEN A P. LIN J:Reconstructing the spatial planning system with Chinese characteristics. Beijing Planning Review, 2018,(4):184-187.]
[20]张京祥,林怀策,陈浩.中国空间规划体系40年的变迁与改革.经济地理, 2018, 38(7):1-6.[ZHANG J X, LIN H C,CHEN H. 40-Year changes and reforms of China's spatial planning system. Economic Geography, 2018, 38(7):1-6.]
[21]杨保军.城市规划30年回顾与展望.城市规划学刊, 2010,(1):14-23.[YANG B J. Urban planning 30 years:Reviews and prospects. Urban Planning Forum, 2010,(1):14-23.]
[22]张京祥,陈浩.空间治理:中国城乡规划转型的政治经济学.城市规划, 2014, 38(11):9-15.[ZHANG J X, CHEN H.Spacial governance:Political economy of China's urban and rural planning transformation. Urban Planning, 2014, 38(11):9-15.]
[23]沈镭,张红丽,钟帅,等.新时代下中国自然资源安全的战略思考.自然资源学报, 2018, 33(5):721-734.[SHEN L,ZHANG H L, ZHONG S, et al. Strategic thinking on the security of natural resources of China in the New Era. Journal of Natural Resources, 2018, 33(5):721-734.]
[24]梁鹤年.再谈“城市人”:以人为本的城镇化.城市规划, 2014, 38(9):64-75.[LIANG H N. Further discussion on homourbanicus:Human-based urbanization. Urban Planning, 2014, 38(9):64-75.]
[25]张京祥,庄林德.管治及城市与区域管治:一种新制度性规划理念.城市规划, 2000, 24(6):36-39.[ZHANG J X,ZHUANG L D. Governance and governance for city and region. Urban Planning, 2000, 24(6):36-39.]
[26]谢英挺.基于治理能力提升的空间规划体系构建.规划师, 2017, 33(2):24-27.[XIE Y T. Spatial planning system construction for the improvement of governance capability. Planners, 2017, 33(2):24-27.]
[27]李和平,余廷墨,张海龙.非法定规划的实践价值和技术策略.规划师, 2012, 28(1):61-65.[LI H P, YU T M,ZHANG H L. Non-statutory planning's value and techniques. Planners, 2012, 28(1):61-65.]
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