基于人类行为视角的市县国土空间总体规划管控措施编制思路探究
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摘要
在明确国土空间规划应融合多规,以主体控制线统一管控分区,强化底线约束,实施用途管制的前提下,管控措施编制对国土空间规划管控策略、管控体系的构建与实施至关重要。本研究的目的是探索基于人类行为的市县国土空间总体规划管控措施编制思路。尝试从人类行为视角进一步延伸管控思路,并衔接现行法律法规、部门规章等管控文件作为编制参照,根据人类行为与自然资源、国土空间的作用关系,结合行为开展与分区用途是否匹配,推导相关行为在对应市县国土空间总体规划管控分区的管控措施,以期为实现国土空间规划精准落地和国土空间资源保护与开发精细化管理提供参考。
Since the territorial spatial planning is required to merge multi-planning, unify zoning, and implement baseline regulations by land functions, compilation of spatial regulation is significant for constructing and implementing the strategies and system of spatial regulation.Even though we can unify the zoning of multi-planning through the boundary lines of spatial regulation districts, three issues must be concentrated to coordinate multi-planning regulation and reinforce the binding of territorial spatial master planning regulation to special plans and site plans. First, implement spatial regulations with human behaviors as the objects to improve constraint on negative influences. Second, merge current ordinances into territorial spatial master planning regulations. Third, enhance the guidance and constraint of baseline control model to non-developing and constructing human behaviors. The current researches have studied the definitions and objectives of the territorial spatial planning regulations through legal principles, logics, zoning and policies, and attempted to compile the strategies and systems of the territorial spatial planning regulation as well. Meanwhile, some researches have studied the influence relations among human behaviors, natural resources and territorial space. However,they lack a discussion of the compiling thinking of regulation ordinance from the perspective of human behaviors, which is an indispensable factor supporting the implementation of territorial spatial planning. This research aims at establishing a compiling thinking of the territorial spatial master planning regulation based on the perspective of human behaviors. We coordinate the zoning and regulations between territorial spatial planning regulations and regulation ordinances with human behaviors as carriers, and infer the relevant regulations of territorial spatial master plan according to the impacts caused by human behaviors to ensure the targeted implementation.
Since the territorial spatial planning is required to merge multi-planning, unify zoning, and implement baseline regulations by land functions, compilation of spatial regulation is significant for constructing and implementing the strategies and system of spatial regulation.Even though we can unify the zoning of multi-planning through the boundary lines of spatial regulation districts, three issues must be concentrated to coordinate multi-planning regulation and reinforce the binding of territorial spatial master planning regulation to special plans and site plans. First, implement spatial regulations with human behaviors as the objects to improve constraint on negative influences. Second, merge current ordinances into territorial spatial master planning regulations. Third, enhance the guidance and constraint of baseline control model to non-developing and constructing human behaviors. The current researches have studied the definitions and objectives of the territorial spatial planning regulations through legal principles, logics, zoning and policies, and attempted to compile the strategies and systems of the territorial spatial planning regulation as well. Meanwhile, some researches have studied the influence relations among human behaviors, natural resources and territorial space. However,they lack a discussion of the compiling thinking of regulation ordinance from the perspective of human behaviors, which is an indispensable factor supporting the implementation of territorial spatial planning. This research aims at establishing a compiling thinking of the territorial spatial master planning regulation based on the perspective of human behaviors. We coordinate the zoning and regulations between territorial spatial planning regulations and regulation ordinances with human behaviors as carriers, and infer the relevant regulations of territorial spatial master plan according to the impacts caused by human behaviors to ensure the targeted implementation.
引文
[1]史家明,范宇,胡国俊,等.基于“两规融合”的上海市国土空间“四线”管控体系研究.城市规划学刊, 2017,(s1):31-41.[SHI J M, FAN Y, HU G J, et al."Four line"control system based on spatial plan integration in Shanghai. Urban Planning Forum, 2017,(s1):31-41.]
[2]王宁.中国语境下“规划指引”的内涵思辨和制度解释:兼对中国式规划管控方式的反思.规划师, 2013, 29(8):10-15.[WANG N. The connotation and institution of"planning guidance"in China. Planners, 2013, 29(8):10-15.]
[3]王国恩.“三规”空间管制问题的辨析与解决思路.现代城市研究, 2015,(2):33-39.[WANG G N. Discrimination and solutions to the problems of three-plan spatial regulation. Modern Urban Research, 2015,(2):33-39.]
[4]余亮亮,蔡银莺.国土空间规划管制与区域经济协调发展研究:一个分析框架.自然资源学报, 2017, 32(8):1445-1456.[YU L L, CAI Y Y. Research on spatial regulation of land use planning and coordinated development of regional economy:An analytical framework. Journal of Natural Resources, 2017, 32(8):1445-1456.]
[5]吕晓,黄贤金,钟太洋,等.土地利用规划对建设用地扩张的管控效果分析:基于一致性与有效性的复合视角.自然资源学报, 2015, 30(2):177-187.[LYU X, HUANG X J, ZHONG T Y, et al. The controlling effects of land-use planning on construction land expansion based on the perspective compositing consistency and effectiveness. Journal of Natural Resources, 2015, 30(2):177-187.]
[6]曹靖,李星银,陈婷婷,等.基于空间增长模拟的安庆城市开发边界划定方法及管控策略.规划师, 2016, 32(6):23-30.[CAO J, LI X Y, CHEN T T, et al. Anqing urban development boundary specification and management based on spatial growth simulation. Planners, 2016, 32(6):23-30.]
[7]聂晶鑫,黄亚平,单卓然,等.基于边界管控的城乡边缘区空间发展策略探索.规划师, 2017, 33(10):65-69.[NIE J X,HUANG Y P, SHAN Z R, et al. Spatial development of urban fringe area based on border control. Planners, 2017, 33(10):65-69.]
[8]吴之凌,汪云,夏巍.新型城镇化视角下的武汉近郊区规划管控研究.规划师, 2013, 29(9):94-98.[WU Z L, WANG Y, XIA W. Metropolitan suburb planning control from new urbanization viewpoint Wuhan. Planners, 2013, 29(9):94-98.]
[9]胡立兵,欧名豪.城市国有土地供应机制与有效管控研究:基于南京市的实证分析.中国土地科学, 2012, 26(4):23-28, 35.[HU L B, OU M H. A study on the mechanism and effectiveness control of state-owned urban land supply:An empirical study of Nanjing city. China Land Sciences, 2012, 26(4):23-28, 35.]
[10]潘悦,程超,洪亮平.基于规划协同的市(县)空间管制区划研究.城市发展研究, 2017, 24(3):1-8.[PAN Y, CHENG C, HONG L P. Research on the spatial control zoning in urban(county)based on multiple plans coordination. Urban Studies, 2017, 24(3):1-8.]
[11]辛修昌,邵磊,顾朝林,等.从“做什么”到“不做什么”:基于“多规融合”的县域空间管制体系构建.城市发展研究,2016, 23(3):15-21.[XIN X C, SHAO L, GU C L, et al. From"what to do"to"what not to do":The construction of county spatial control system based on"multiple planning coordination". Urban Studies, 2016, 23(3):15-21.]
[12]林坚,吴宇翔,吴佳雨,等.论空间规划体系的构建:兼析空间规划、国土空间用途管制与自然资源监管的关系.城市规划, 2018, 42(5):9-17.[LIN J, WU Y X, WU J Y, et al. Construction of the spatial planning system:With discussions on the relationship between spatial planning, territorial spatial regulation, and natural resources supervision. City Planning Review, 2018, 42(5):9-17.]
[13]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.]
[14]王金岩.空间规划体系与空间治理.南京:东南大学出版社, 2017:24-25.[WANG J Y. Spatial Planning System and Spatial Governance. Nanjing:Southeast University Press, 2017:24-25.]
[15]杜黎明,张成军.实施空间管治的土地政策研究:基于主体功能区的视角.北京:经济科学出版社, 2011:38-39.[DU L M, ZHANG C J. Land Policy Research of the Implementation of Spatial Governance based on the Perspective of Major Function Oriented Zoning. Beijing:Economic Science Press, 2011:38-39.]
[16]林坚,许超诣.土地发展权、空间管制与规划协同.城市规划, 2014, 38(1):26-34.[LIN J, XU C Y. Land development rights, space control, and synergetic planning. City Planning Review, 2014, 38(1):26-34.]
[17]沈悦,刘天科,周璞.自然生态空间用途管制理论分析及管制策略研究.中国土地科学, 2017, 31(12):17-24.[SHEN Y, LIU T K, ZHOU P. Theoretical analysis and strategies of natural ecological space use control. China Land Sciences,2017, 31(12):17-24.]
[18] ALBRECHTS L. Strategic(spatial)planning reexamined. Environment and Planning B:Urban Analytics and City Science, 2004, 31(5):743-758.
[19]杨玲.基于空间管制的“多规合一”控制线系统初探:关于县(市)域城乡全覆盖的空间管制分区的再思考.城市发展研究, 2016, 23(2):8-15.[YANG L. Preliminary study on"multi-planning united"control system based on spatial control:Further consideration on the spatial control division of urban and rural full coverage in county(city)area. Urban Studies, 2016, 23(2):8-15.]
[20]刘超.生态空间管制的环境法律表达.法学杂志, 2014, 35(5):22-32.[LIU C. Environmental law expression of ecological space control policy. Law Science Magazine, 2014, 35(5):22-32.]
[21]郝晋伟,李建伟,刘科伟.城市总体规划中的空间管制体系建构研究.城市规划, 2013, 37(4):62-67.[HAO J W, LI J W, LIU K W. Study on spatial control system in city master plan. City Planning Review, 2013, 37(4):62-67.]
[22]汪劲柏,赵民.论建构统一的国土及城乡空间管理框架:基于对主体功能区划、生态功能区划、空间管制区划的辨析.城市规划, 2008,(12):40-48.[WANG J B, ZHAO M. Towards unified territory and urban-rural spatial administration framework. City Planning Review, 2008,(12):40-48.]
[23]王磊,沈建法.规划管理、空间管制机制与规划协调:以S市规划体制改革试点为例.城市规划, 2017, 41(2):18-26.[WANG L, SHEN J F. Planning administration, spatial regulation mechanisms, and planning coordination:A case study of planning system reform in S city. City Planning Review, 2017, 41(2):18-26.]
[24]史怀昱,陈健.新时期城市空间管控体系构建与榆林实践.规划师, 2016, 32(3):120-124.[SHI H Y, CHEN J. Urban space governance system in the new era Yulin. Planners, 2016, 32(3):120-124.]
(1)《中华人民共和国自然保护区条例》第27、第28、第32条；《地质遗迹保护管理规定》第11条；《湿地保护修复制度方案》第10条；《饮用水水源保护区污染防治管理规定》第12条；《风景名胜区条例》第27、第36条；《中华人民共和国草原法》第52条。
(2)参照《生态保护红线划定指南》。
[2]王宁.中国语境下“规划指引”的内涵思辨和制度解释:兼对中国式规划管控方式的反思.规划师, 2013, 29(8):10-15.[WANG N. The connotation and institution of"planning guidance"in China. Planners, 2013, 29(8):10-15.]
[3]王国恩.“三规”空间管制问题的辨析与解决思路.现代城市研究, 2015,(2):33-39.[WANG G N. Discrimination and solutions to the problems of three-plan spatial regulation. Modern Urban Research, 2015,(2):33-39.]
[4]余亮亮,蔡银莺.国土空间规划管制与区域经济协调发展研究:一个分析框架.自然资源学报, 2017, 32(8):1445-1456.[YU L L, CAI Y Y. Research on spatial regulation of land use planning and coordinated development of regional economy:An analytical framework. Journal of Natural Resources, 2017, 32(8):1445-1456.]
[5]吕晓,黄贤金,钟太洋,等.土地利用规划对建设用地扩张的管控效果分析:基于一致性与有效性的复合视角.自然资源学报, 2015, 30(2):177-187.[LYU X, HUANG X J, ZHONG T Y, et al. The controlling effects of land-use planning on construction land expansion based on the perspective compositing consistency and effectiveness. Journal of Natural Resources, 2015, 30(2):177-187.]
[6]曹靖,李星银,陈婷婷,等.基于空间增长模拟的安庆城市开发边界划定方法及管控策略.规划师, 2016, 32(6):23-30.[CAO J, LI X Y, CHEN T T, et al. Anqing urban development boundary specification and management based on spatial growth simulation. Planners, 2016, 32(6):23-30.]
[7]聂晶鑫,黄亚平,单卓然,等.基于边界管控的城乡边缘区空间发展策略探索.规划师, 2017, 33(10):65-69.[NIE J X,HUANG Y P, SHAN Z R, et al. Spatial development of urban fringe area based on border control. Planners, 2017, 33(10):65-69.]
[8]吴之凌,汪云,夏巍.新型城镇化视角下的武汉近郊区规划管控研究.规划师, 2013, 29(9):94-98.[WU Z L, WANG Y, XIA W. Metropolitan suburb planning control from new urbanization viewpoint Wuhan. Planners, 2013, 29(9):94-98.]
[9]胡立兵,欧名豪.城市国有土地供应机制与有效管控研究:基于南京市的实证分析.中国土地科学, 2012, 26(4):23-28, 35.[HU L B, OU M H. A study on the mechanism and effectiveness control of state-owned urban land supply:An empirical study of Nanjing city. China Land Sciences, 2012, 26(4):23-28, 35.]
[10]潘悦,程超,洪亮平.基于规划协同的市(县)空间管制区划研究.城市发展研究, 2017, 24(3):1-8.[PAN Y, CHENG C, HONG L P. Research on the spatial control zoning in urban(county)based on multiple plans coordination. Urban Studies, 2017, 24(3):1-8.]
[11]辛修昌,邵磊,顾朝林,等.从“做什么”到“不做什么”:基于“多规融合”的县域空间管制体系构建.城市发展研究,2016, 23(3):15-21.[XIN X C, SHAO L, GU C L, et al. From"what to do"to"what not to do":The construction of county spatial control system based on"multiple planning coordination". Urban Studies, 2016, 23(3):15-21.]
[12]林坚,吴宇翔,吴佳雨,等.论空间规划体系的构建:兼析空间规划、国土空间用途管制与自然资源监管的关系.城市规划, 2018, 42(5):9-17.[LIN J, WU Y X, WU J Y, et al. Construction of the spatial planning system:With discussions on the relationship between spatial planning, territorial spatial regulation, and natural resources supervision. City Planning Review, 2018, 42(5):9-17.]
[13]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.]
[14]王金岩.空间规划体系与空间治理.南京:东南大学出版社, 2017:24-25.[WANG J Y. Spatial Planning System and Spatial Governance. Nanjing:Southeast University Press, 2017:24-25.]
[15]杜黎明,张成军.实施空间管治的土地政策研究:基于主体功能区的视角.北京:经济科学出版社, 2011:38-39.[DU L M, ZHANG C J. Land Policy Research of the Implementation of Spatial Governance based on the Perspective of Major Function Oriented Zoning. Beijing:Economic Science Press, 2011:38-39.]
[16]林坚,许超诣.土地发展权、空间管制与规划协同.城市规划, 2014, 38(1):26-34.[LIN J, XU C Y. Land development rights, space control, and synergetic planning. City Planning Review, 2014, 38(1):26-34.]
[17]沈悦,刘天科,周璞.自然生态空间用途管制理论分析及管制策略研究.中国土地科学, 2017, 31(12):17-24.[SHEN Y, LIU T K, ZHOU P. Theoretical analysis and strategies of natural ecological space use control. China Land Sciences,2017, 31(12):17-24.]
[18] ALBRECHTS L. Strategic(spatial)planning reexamined. Environment and Planning B:Urban Analytics and City Science, 2004, 31(5):743-758.
[19]杨玲.基于空间管制的“多规合一”控制线系统初探:关于县(市)域城乡全覆盖的空间管制分区的再思考.城市发展研究, 2016, 23(2):8-15.[YANG L. Preliminary study on"multi-planning united"control system based on spatial control:Further consideration on the spatial control division of urban and rural full coverage in county(city)area. Urban Studies, 2016, 23(2):8-15.]
[20]刘超.生态空间管制的环境法律表达.法学杂志, 2014, 35(5):22-32.[LIU C. Environmental law expression of ecological space control policy. Law Science Magazine, 2014, 35(5):22-32.]
[21]郝晋伟,李建伟,刘科伟.城市总体规划中的空间管制体系建构研究.城市规划, 2013, 37(4):62-67.[HAO J W, LI J W, LIU K W. Study on spatial control system in city master plan. City Planning Review, 2013, 37(4):62-67.]
[22]汪劲柏,赵民.论建构统一的国土及城乡空间管理框架:基于对主体功能区划、生态功能区划、空间管制区划的辨析.城市规划, 2008,(12):40-48.[WANG J B, ZHAO M. Towards unified territory and urban-rural spatial administration framework. City Planning Review, 2008,(12):40-48.]
[23]王磊,沈建法.规划管理、空间管制机制与规划协调:以S市规划体制改革试点为例.城市规划, 2017, 41(2):18-26.[WANG L, SHEN J F. Planning administration, spatial regulation mechanisms, and planning coordination:A case study of planning system reform in S city. City Planning Review, 2017, 41(2):18-26.]
[24]史怀昱,陈健.新时期城市空间管控体系构建与榆林实践.规划师, 2016, 32(3):120-124.[SHI H Y, CHEN J. Urban space governance system in the new era Yulin. Planners, 2016, 32(3):120-124.]
(1)《中华人民共和国自然保护区条例》第27、第28、第32条；《地质遗迹保护管理规定》第11条；《湿地保护修复制度方案》第10条；《饮用水水源保护区污染防治管理规定》第12条；《风景名胜区条例》第27、第36条；《中华人民共和国草原法》第52条。
(2)参照《生态保护红线划定指南》。