国土空间规划的公众参与体系重构——基于沟通行动理论的演绎与分析

RECONSTRUCTION OF PUBLIC PARTICIPATION SYSTEM IN TERRITORIAL PLANNING BASED ON COMMUNICATION ACTION THEORY

从公众参与的内涵出发,首先通过阐述早期的治理权力理论嬗变,指出在自下而上的权力理论中,沟通行动理论作为温和调节精英代议与全民公投的指导思想,可以为公众参与制度的构建适用。然后,通过介绍沟通行动理论所构建的认知理性、工具理性、交往理性分析范式,将其与民众多样诉求、政府行政意图、公众参与结果建立相应联系。接下来,文章对既有空间规划领域内的现行公众参与方式进行分析,明确法律赋予的公众参与权力,并研究在"五级三类"的国土空间规划体系下,各层级、各领域公众参与的特性。最后,结合沟通行动理论的达成交往理想的"对话"方法,得出国土空间规划公众参与体系基于规划层级、规划领域的纲领性重构方式。

Starting from the connotation of public participation,this paper first expounds the evolution of early governance power theory,and points out that in the bottom-up power theory,communication action theory,as the guiding ideology of moderate coordination of elite representative and citizen resolution,can be applied to the construction of public participation system.Secondly,by introducing the analytical paradigm of Cognitive Rationality,Instrumental Rationality and Communicative Rationality constructed by Communication Action Theory,the paper establishes corresponding relations with the diverse demands of the public,the administrative intention of the government,and the results of public participation.Next,the paper analyzes the current public participation methods in the existing spatial planning field,clarifies the public participation rights given by the law,and studies the characteristics of public participation in all levels and fields under the territory spatial planning system of"five levels and three categories".Finally,combined with the"conversation"method of Communication Action Theory to achieve the ideal understanding,the programmatic reconstruction mode of public participation system of territory spatial planning based on planning level and planning field is obtained.