论我国规划保证义务的立法结构

On the legislation construction of planning obligation in China

实体法上规划保证义务的缺失和责任机制的疏漏是立法范畴内规划赤字失范现象的症结。我国既有的规划保证义务立法结构是国家《城乡规划法》保留程序性框架基本内容,将实质内容下沉给部门特别法或地方立法填充,这一立法模式存在国家立法框架性指导空洞化和地方立法割据的结构性问题。《城乡规划法》作为国家立法,对规划调整自由裁量的法定限制应具有纲领性实质内容,通过对规划保证义务实体标准核心要件的规定,实现从程序规制向实体规制的转化。在国家立法与地方立法的关系问题上,一种通过完善强制性位阶审查制度,重点调整规划保证义务立法结构中"中央—地方"纵向关系;一种通过开创符合中国现实的城市更新地方示范法,侧重调整规划保证义务立法结构中"地方—地方"横向关系。两种模式互补与互助的适用,将对规划保证义务立法形成网格规制的理想结构模型。

The lack of planning obligation and the faultiness of planning responsibility is the result of ＂planning deficit＂problem rooted in planning legislation. The existing legislation of planning obligation is made of the basic procedural frameworkderived from The People＇s Republic of China on Urban and Rural Planning,and the substance content provided by specialgovernment regulations or local legislations. There is a hollowing- out problem in legislation framework and serious conflicts indifferent local legislations. The PRCURP,as national legislation,should provide core elements about the legal limitsin planning adjustment in order to direct variouslocal legislations. The two methods can be applied to unify the relation between national legislation and local legislations in planning obligation. One way is perfect the mandatory status entry according to The Constitution. Another way is to create local modellegislation in urban construction planning field. The application of the two modes is an ideal structure model ofplanning obligationlegislation.