德国景观规划的价值逻辑、法律框架及启示

VALUES AND LEGAL FRAMEWORK OF GERMAN LANDSCAPE PLANNING AND THE IMPLICATIONS

德国景观规划被视为国土空间规划管理体系的一个成功案例。本文通过梳理德国景观规划的历史发展脉络、价值逻辑及法律框架,将其实践经验的基本逻辑总结为:1)重视在历史文化传统中寻找规划的伦理依据;2)景观整体论结合社会发展需求以完善规划对象的界定;3)以成本-效益最优化为导向制定规划措施;4)基于辅助性原则和景观过程尺度效应明确规划层级划分。以上逻辑在德国景观规划的法律依据中得到充分贯彻,保障了其实施效率。其后,本文结合具体的国情背景,建议中国国土空间规划进一步推动空间资源使用权、收益权与所有权的剥离,构建良性的公私利益博弈与制衡机制,提升规划的公平性;在完善国土空间规划技术标准体系的基础上,重点强化乡镇基层国土空间规划中的公众参与力度和效率,构建国土空间规划的决策参与机制;基于"五级三类"规划层级架构,在确立上级规划权威性、保证规划效率的同时,通过生态系统服务等生态公共产品的有偿供给和补偿,构建跨层级和跨区域的规划协调机制。

German landscape planning has gathered many experiences and become an outstandingly working system of the nation’s territorial spatial planning.By reviewing its history,values,and legal framework,this paper summarizes the experience of German landscape planning and draws conclusions for its success into four logics:1)the normative basis for the evaluation and deduction of objectives is transparent and stems primarily from ethical and cultural values;2)social development needs are considered in the overall spatial planning and local participation processes;3)planning methods include ways to effective implementation;and 4)the principle of subsidiary and the scale effect of landscape processes are considered.These logics are reflected and guaranteed by the German legislation.With a profound understanding of China’s reality,the authors argue that China needs more efforts to further separate the right to use and the revenues from the ownership of the spatial resources,and build a balancing mechanism for public-private interest negotiation to ensure the fairness of planning;In addition to enriching the evaluation standards and methodological standards for territorial spatial planning,a greater attention should be given to enhancing the effectiveness and efficiency of public participation at lower planning levels by establishing respective routines of bottom up initiatives and processes;Within the"FiveLevel and Three-Type Framework,"China should introduce cross-level and cross-regional planning coordination mechanism that facilitates the paid supply and compensation mechanism of ecological public goods like ecosystem services.