发展战略、体制机制与国土空间规划

我国土地研究领域知名学者,原中国土地勘测规划院(现中国国土勘测规划院)院长、党委书记,曾担任中国土地学会副理事长的黄小虎研究员,应邀于2020年11月21日在清华大学土地利用与住房政策研究中心主办的“后疫情时代:国土空间规划与城乡高质量发展”论坛上作主题报告。他在发言中指出:传统规划体系存在多类型规划矛盾冲突的问题,多规合一为解决这一问题指明了方向、奠定了基础。十八大以后,中央对经济社会的发展战略、路线方针等陆续做出重大调整,国家发展内涵发生转变,要求突出发展质量,强调环境保护、农业农村优先。在体制机制上明确由新组建的自然资源部负责建立空间规划体系,其他部门不再编制涉及空间布局的规划,“多规合一”得到实现。国土空间规划的核心内容是国土利用和土地利用的功能分区,这也是用途管制的依据。

Development strategy,institutional mechanism,and territorial spatial planning

Traditional planning systems have the problem of multi-type planning conflicts. The integration of multi-type planning points out the analysis and lays the foundation for solving this problem. Since the 18 th National Congress of the Communist Party of China, the central government has made major adjustments to its economic and social development strategies, lines, and guidelines;and the connotation of national development has changed. The quality of development has been emphasized, and environmental protection, agriculture, and rural areas have been given priority. In terms of systems and mechanisms, it is clear that the newly established Ministry of Natural Resources is responsible for the establishment of the spatial planning system, while other departments no longer draw up plans related to spatial layout, thus realizing the integration of multiple plans. The core content of national territorial spatial planning(NTSP) is land use and its functional zoning, which is also the basis of use control. The base of the NTSP is fully dependent on the Plan for Main Function Zones drawn up in 2011. Based on the original main function zoning, the Plan for Main Function Zones suggested that the plan should be extended to the prefectural cities, counties, and townships, and implemented into plot planning drawings to provide the basis for the implementation of use control. The classification of priority development, key development, restricted development, and forbidden development in the original main function area planning, needs to make the sublevel of functional zoning in various main functional areas. In addition, the corresponding measurement indexes and technical standards for priority, key, restricted, and prohibited development should be formulated, and further elaboration should be made in the NTSP. Relevant departments still need to compile professional plans and project plans, and the contents of special plans should be superimposed on the national geographic information system, which must take the national spatial planning map as the working base map. The NTSP should be the basic planning used by all government departments and society. It is a medium – and long-term plan. Its main task is to arrange the overall layout of land and space utilization, and it is at the top of the national planning system. The five-year plan for economic and social development is the implementation plan for the near and middle terms of NTSP. All the contents concerning space utilization should be subordinate to the arrangement of NTSP because of second-level planning. The special plans of other departments belong to the third level. The relationship between the three levels of planning, especially the "five-year plan" and spatial planning, needs to be found out in practice, and the final national planning law should be formulated to clarify it. This study was delivered at the forum "Post-epidemic Era: National Territorial Spatial Planning and High Quality Urban and Rural Development" hosted by the Center for Land Use and Housing Policy, Tsinghua University, on November 21, 2020.