土地利用总体规划与城市规划冲突的利益关系及协调——基于规划管理者和规划编制者的问卷调查和深度访谈

Conflicts and Coordination of Interest Relationships Between Land Use Planning and Urban Planning: Based on Questionnaires and Depth Interview of Planning Managers and Planers

研究目的:调查"两规"冲突不同利益主体的利益诉求及其针对城镇建设用地规模这一"两规"冲突核心问题的行为倾向,并据此勾勒出"两规"冲突的利益相关者关系,进而探寻相应的协调对策。研究方法:问卷调查法、深度访谈法。研究结果:15个利益主体有不同的利益诉求,其中某些主体同时拥有多项相互矛盾的利益诉求;针对城镇建设用地规模这一核心问题,具有矛盾利益诉求的主体有着不同的行为倾向;依据其利益诉求及行为倾向,可以将15个利益主体分别归入利益相关者核心层、紧密层和松散层。研究结论:改变核心层利益相关者的利益诉求,减缓其对立关系是解决"两规"冲突的根本出路;在规划编制阶段构建完善的冲突协商机制和在规划审批阶段强化省级政府的制约作用是当前更务实的选择;此外,还需强化规划的执行监督,及时发现并处置冲突。

The purpose of this paper is to outline the stakeholder relationships of the conflict between land use planning and urban planning and explore corresponding policies to resolute conflict, based on the survey of stakeholders＇ interest demand and behavioral intentions for urban land scale which is the core issue in the conflict. Methods employed include questionnaire survey and in-depth interview. The results show that 15 stakeholders have different interest demands and behavioral intentions, and some of them have several contradictory interest demands. They can be divided into 3 levels, i.e., core level, related level and loose level according to their interest demands and behavioral intentions. It is concluded that fundamental way to resolve the conflict is to change core stakeholders＇ interest demands and reduce the opposite relationship between them. The more pragmatic choice at present is to build negotiation mechanism in planning design stage and strengthen restriction of the government at the provincial level in planning approval. At last, it is necessary to increase the supervision intensity of plan＇ s implementation in order to make timely detection and handle conflict.