治理现代化目标下国家空间规划体系的变迁与重构

doi:10.31497/zrzyxb.20191002

摘要/Abstract

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。

关键词: 国家治理体系, 治理现代化, 空间规划, 变迁, 重构

Abstract:

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.

Key words: national governance system, governance modernization, spatial planning, change, reconstruction

张京祥, 夏天慈. 治理现代化目标下国家空间规划体系的变迁与重构[J]. 自然资源学报, 2019, 34(10): 2040-2050.

ZHANG Jing-xiang, XIA Tian-ci. The change and reconstruction of spatial planning system under the goal of modern national governance[J]. JOURNAL OF NATURAL RESOURCES, 2019, 34(10): 2040-2050.

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阶段划分	计划经济时期	“双轨制”时期	“增长主义”时期	“调控—刺激”反复期	治理体系重构期
时间	1949-1977年	1978-1992年	1993-2000s	2000s-2012年	2013年至今
治理体系特征	计划经济、中央集权、宏观调控	市场化改革起步,计划经济商品经济“双轨制”运行	社会主义市场经济体制确立、地方政府企业化	“调控—刺激”政策之间反复、地方发展冲动仍在延续	国家治理体系与治理能力现代化改革
空间规划特征	作为国民经济计划的空间落实	计划部门牵头编制国土规划、区域规划	增长导向的城市总体规划、控制性详细规划、战略规划迅速发展	多规冲突,多元规划体系并存	空间规划体系全面重构
	区域规划、城市规划是其主要类型	各地市开始编制城市总体规划	规划成为地方政府推动经济增长的重要工具	国家空间规划体系在类型构成、层级对应、事权划分、技术标准等各方面都非常混乱	自然资源部成立,空间规划的体系与职能整合
		以城市规划为主体的国家空间规划体系初步形成	以地方为核心、高度分权的空间规划体系		到2020年,将基本建立国土空间规划体系