国土空间规划：发展历程、治理现状与管制策略

NATIONAL TERRITORY SPATIAL PLANNING: EVOLUTION PROCESS, GOVERNANCE STATUS AND CONTROL STRATEGIES

关键词:  国土空间规划  内涵  发展历程  治理结构  现实问题  管制策略

Key words:  national territory spatial planning  connotation  evolution process  governance structure  practical problems  control strategies

摘要:

目的 国土空间规划是推进“多规合一”，加强自然资源管理的战略保障，也是新时代发展亟需破解的关键性问题，对完善我国空间治理体系、协调经济高质量发展与绿色发展关系具有重要意义。方法 文章基于当前国土空间规划现状和学术研究前沿，采用文献分析法和归纳总结方法探讨国土空间规划发展历程、治理结构、现实问题及其管制策略。结果 我国国土空间规划正处于“发展完善阶段”，具有规划种类多、内容交叉重叠、多头管理等特征，表现为“五级三类”规划管理体系下“自上而下”的多部门规划并行治理结构，其现实问题集中于“规划体系与管理体制不完善，法律法规体系不健全”“规划编制实施规范不一，规划协调衔接度不高”“规划执行理念相对较弱，规划统筹调控力度不强”等方面。结论 我国国土空间规划的重点在于建立并完善国土空间规划体系，厘清各项规划内容、作用、地位及其相互作用关系，编制上位国土空间规划满足顶层管制所需，综合推进并完善国土空间规划运行机制、实施路径及其配套政策体系，确保国土空间规划实施成效，促进新时期经济社会发展与生态保护关系协调。

Abstract:

National territory spatial planning is a strategic guarantee to promote the “integration of multiple plans” and strengthen natural resources management. It’s also a key issue that needs to be solved in the new era development. It is of great significance to improve China’s spatial governance system and coordinate the relationship between high-quality economic development and green development. Based on the current situation of national territory spatial planning and the frontier of academic research, this paper discussed its evolution process, governance structure, practical problems and control strategies by literature analysis and summary method. The results were indicated as follows. National territory spatial planning in China was in the developing and completing stage with the characteristics of multiple planning types, overlapping contents and multiple management, which was manifested as the “top-down” multisectoral planning with parallel governance structures under the planning and management system of “five-levels and three-types”, and the main practical problems were focused on “imperfect planning and management system and unsound legal system”, “inconsistent planning implementation norms and its poor coordination” and “execution concept of planning and the overall planning regulation were weak”. So, in order to ensure the effectiveness of China’s national territorial space planning and promote coordination between economic-social development and ecological protection in the new era, the key of China’s national territory spatial planning is to establish and perfect its system, clarify the planning content, function, status and their interrelation, formulate the upper national territory spatial planning to meet the top-level governance needs, comprehensively promote and improve operational mechanism, implementation path and supporting policy system for national territory spatial planning.