国土空间用途管制的演进历程、发展趋势与政策创新

Territorial Space Use Control: Historical Evolution, Development Trend and Policy Innovation

研究目的:探究国土空间用途管制的历史沿革、发展趋势与政策创新。研究方法:文献分析法和比较分析法。研究结果:(1)国土空间用途管制的发展大致经历了4个阶段,即土地用途管制阶段、生态要素用途管制阶段、自然生态空间用途管制阶段、国土空间用途管制阶段;(2)国土空间用途管制的发展趋势主要包括:与行政体制改革的相契合、与国土空间规划相契合、与各类空间政策相契合、与信息融合相契合;(3)国土空间用途管制的实施机制要综合运用行政手段、经济手段、法律手段和技术手段,考虑不同层级政府的分工、不同部门的分工,建立指标+空间+清单的管理模式;创新生态产品价值的实现机制,完善生态补偿政策,探索建立可交易发展权的政策设计;(4)高度重视法律法规在空间用途管制中的作用,强化依法管制、依法治国、高效治理等要求,并做好国土空间用途管制的技术支撑。研究结论:从提高制度协同配合效率角度审视国土空间用途管制;把握国土空间用途管制中的机构改革、技术调整、空间规划和政策延续等关键内容;综合运用经济、行政、法律、技术等手段,共同提高国土空间用途管制水平。

The purpose of this paper it to explore the historical evolution, development trend and policy innovation of territorial space use control. The research methods include literature analysis and comparative analysis. The results showed that: 1) there are four stages in the development of territorial space use control, namely land use control stage,multi-factor use control stage, natural ecological space use control stage and land space use control stage. 2) The development trend of territorial space use control mainly includes the conformity of institutional reform, technical adjustment, spatial planning and policy continuity. 3) The implementation mechanism of territorial space use control should employ administrative, economic, legal and technical means comprehensively. Considering the division of responsibilities among different levels of government and different departments, the model of index management and inventory management should be established, the mechanism of realizing the value of ecological products should be innovated, the policy of ecological compensation in river basins(regions) should be improved and the policy design of trans-regional tradable right to development should be well established. 4) We should attach great importance to the role of laws and regulations in controlling the space use, strengthen the requirements of control according to law, govern the country according to law and managing efficiently, and do a good job of technical support for controlling the territorial space use. In conclusion, it is necessary to examine the control of territorial space use from the perspective of improving the efficiency of systematic coordination, to grasp the key contents of institutional reform, technological adjustment,spatial planning and policy continuation of territorial space use control, and to improve the control level of territorial space use by means of economy, administration and law.