新时期国土空间治理的价值传导与目标演进——市县国土空间规划指标体系的响应

Value Transmission and Goal Evolution of Territorial Spatial Governance in the New Era:Response of the Territorial Spatial Planning Index System at the City and County Scale

基于对国土空间及空间规划内涵的梳理分析,深入剖析新时期国土空间治理的内在价值传导关系,探讨面向高质量发展的市县国土空间总体规划指标体系构建逻辑。研究认为:1)国土空间规划目标与国土空间治理指标之间有着严密的价值传导关系,不同层级政府的战略目标和空间治理理念在传递中分化衍变,导致规划指标体系在关注对象、控制性、统筹性等方面的差异;2)市县国土空间总体规划指标体系的建构,需要基于价值传导和指标控制的协同,以及基于战略目标导向和国土空间治理的统筹,成为规划导向落实的重要抓手;3)多规并行时代的规划指标体系构建共识正在打破重组,构建面向高质量发展的规划指标体系需要认清国土空间规划的战略性和基础性作用,对国家战略的逐级落实和国土空间治理能力提升做出响应。

Through the establishment of the territorial spatial planning system,the logic of territorial spatial governance in the new era has gradually become clear,with ecological civilization construction as the strategic guidance,five development concepts(innovative,coordinated,green,open and shared development concept)as the ideological guidance,and territorial spatial planning as the basic tool.Based on the implications of territorial spatial and spatial planning,this study analyzed the internal value transmission relationship under territorial spatial governance and explored the logic of the general territorial spatial planning index system at the city and county scale required to meet high-quality development.Three main points regarding strategies to enhance territorial spatial planning were highlighted in this study.First,there is a strict internal transmission relationship between spatial planning goals and governance indicators.At present,territorial spatial governance for high-quality development faces complex problems.The government's multi-level strategic objectives and spatial governance concepts differentiate and evolve during the transmission,which leads to differences in the planning index system with respect to aspects such as attention,control,and overall planning.The guidance and control of planning implementation through planning indicators at all levels helps to achieve development goals and manage spatial issues.Second,the development of the index system for general territorial spatial planning at city and county scale requires not only the transmission of top-down hierarchical management and spatial governance for specific problems but also the exertion of index control based on constraints and expectations.Additionally,the index system also needs to consider the supporting role of new urbanization,rural revitalization,marine economy,ecological civilization,and other strategic objectives.Simultaneously,we should grasp the boundaries of developmental,regional,and spatial planning;carry out classified management around the territorial spatial using control objectives;and increase the proportion of spatial indicators in the index system.Third,the consensus on the planning index system in the era of multi-planning parallelism is to break down and reorganize.To build a planning index system for high-quality development,we need to recognize the strategic and fundamental roles of territorial spatial planning and respond to the incremental implementation of national strategies and improvement in the ability of territorial spatial governance.Under different resource endowments with different strategic development layouts and social and economic development stages,relying on the evolving logic of the index system will facilitate the development of a more practical planning index system with unified implications and provide support for the compilation,implementation,supervision,investigation,and evaluation of territorial spatial planning in the new era.