治理现代化目标下国家空间规划体系的变迁与重构

The change and reconstruction of spatial planning system under the goal of modern national governance

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。

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.