“市级”国土空间总体规划编制内容与深度研究——基于空间治理的视角

RESEARCH ON THE CONTENT AND DEPTH OF PREFECTURE-LEVEL TERRITORIAL PLANNING FROM THE PERSPECTIVE OF SPATIAL GOVERNANCE

基于空间治理的视角,研究发现"市级"国土空间总体规划各项内容的编制深度由3个属性决定:(1)该项内容属于政府哪个部门/哪个规划编;(2)该项内容属于政府主导还是市场/社会主导;(3)该项内容属于哪级政府主导。不同属性的内容应达到不同的编制深度。编制深度由两大类、六小类规划语言来体现,分别为引导型语言(包含定性要求、空间结构、位置、分区)和强制型语言(包括定量要求、空间边界)。不同层级国土空间规划内容深度会通过3种方式传导:(1)若为上级规划主导的内容,则下位规划采用"落实"的传导手段;(2)若为上下级共同主导,则下位规划采用同种语言内部递进的方式传导,具体有"深化""优化""增补"3种形式;(3)若为下级规划主导的内容,则下位规划采用不同语言间逐级"转换"的方式。此外,本研究认为"市级"国土空间总体规划虽然属于一个"层级"规划,但实际为多个"层次"规划,包括市域国土空间总体规划、中心城区国土空间总体规划等。基于上述影响机制分析,本研究对"市级"国土空间总体规划中各个层次应编制的内容和深度进行了初步探讨。

From the perspective of spatial governance,the study finds that the depth of each content of prefecture-level urban space master plan is determined by three attributes:(1)which government department/planning does the content belong to;(2)is the content government or market/socially dominated;(3)which level of government dominates the content.The content of different attributes should reach different compilation depths.The compilation depth is reflected in two major categories and six sub-categories of programming languages,which are guiding language(including qualitative requirements,spatial structure,location,partition)and mandatory language(including quantitative requirements,spatial structure,location,and layout)respectively.The content depth of land and territorial planning at different levels will be transmitted in three ways:(1)if the content is dominated by superior planning,the subordinate planning adopts the"implementation"transmission method;(2)if it is co-led by the superior and subordinate levels,the subordinate planning adopts the internal language of the same progressive transmission method,specifically three forms which are"deepening","optimization",and"additional";(3)if it is the content of the lower level planning,the lower level planning adopts the method of"conversion"step by step between different languages.In addition,this study believes that although the prefecture-level urban space master plan belongs to a"hierarchical"plan,it is actually a plan composed of several levels,including the municipal territorial master plan,the central urban area territorial master plan,etc.Based on the analysis of the above-mentioned impact mechanism,this study makes a preliminary discussion on the content and depth that should be compiled at each level in the prefecture-level territorial master plan.