对机构改革背景下空间规划体系构建的思考

“建立空间规划体系”是自然资源部的一项重要职能,也是整合空间规划、保障空间治理机制有效运行的必然要求。在借鉴国外空间规划体系的基础上,按照适应中国政治体制和法律基础、适应未来空间开发和空间治理变化的需求,提出构建层层传导的空间规划体系确保国家重大战略部署得以落实;提出在微观尺度空间规划进行空间开发权与土地利用权的分配,作为实施空间用途管制的法律依据,保障地方多样化、灵活化的发展;通过构建“宏观政策性/指导性规划—中观衔接性规划—微观实施性规划”的空间规划体系,为国家建立和完善空间规划体系、提升空间治理能力提供参考。

The construction of spatial planning system under the background of institutional reform

In March 2018, China's state institutions were reformed and the Ministry of Natural Resources of the People's Republic of China was established to implement unified management of natural resources and spatial planning. Establishing spatial planning system is an important responsibility of the Ministry of Natural Resources, which is also the prerequisite for the integration of various types of spatial planning and effective operation of spatial governance mechanism. The focus of "establishing a unified spatial planning system" is not to unify the external forms of various spatial planning, but to ensure the rational division and effective transmission of the spatial development rights at different levels and different types of spatial planning, so as to improve comprehensively China's spatial governance capacity. To conduct a comprehensive and in- depth study on the international spatial planning systems, literature review method and comparative analysis method are employed in this paper. Based on the results, it is suggested that the new spatial planning system of China should be consisitent with political system and legal basis as well as the changing trend of future spatial development and governance patterns. A spatial planning system has been constructed, covering policy/guidance planning, bridging planning, and implementation planning respectively from the macro, medium and micro perspectives. It proposes that macro and medium spatial planning only have constraints on the next level of spatial planning and special spatial planning and do not involve the allocation of specific land use and spatial development rights, while micro scale land use planning, urban planning, and village planning provide legal basis for land use and spatial development. The system defines the hierarchical relationships, which would further promote the implementation of major national strategies. Moreover, the allocation of rights of spatial planning at the micro scale can give more autonomy to the local government and market. It is also suggested that spatial planning should strengthen the connection with national economic and social development plan, especially at the city and county level. The rules for the preparation and implementation of spatial planning should be established to improve the scientific rationality of the plans. It is also necessary to establish a use of territorial space system, which plays an important role in the implementation of spatial planning system.