公共政策视角下城镇开发边界划定研究--以江苏太仓为例

Research on Delimitation of Urban Development Boundary under Public Policy:Taking Taicang in Jiangsu Practice as an Example

城镇开发边界作为国土空间规划管控的关键政策工具,对其公共政策属性判断缺乏相应研究深化,会导致政策理念不清晰使得政策实践步入窘境。本文基于公共政策视角,选择S-CAD方法,引入“制度管理”要素,将开发边界分为“价值目标—控制技术—制度管理”三个环节,结合其发展路径形成平衡开发保护、匹配供需关系、结合刚性弹性三大关系,以此来探讨我国城镇开发边界划定与管理的内在机制问题。进一步选取江苏省太仓市城镇开发边界划定实践为研究案例,提出“价值目标—控制技术—制度管理”三个环节的技术思路:价值目标方面,坚持底线保护原则,平衡开发与保护的关系;控制技术方面,通过建设用地调整优化,协调空间结构与建设总量的供求关系;制度管理方面,面对城市发展不确定性,刚性控制稳定保护区域,弹性预控各类发展空间,实现近远期发展目标。最后,针对我国小城镇(市)城镇开发边界划定与管理提出相关建议。

As a key policy tool for the management and control of territorial spatial planning,the urban development boundary lacks corresponding research and deepening of the judgment of its public policy attributes.As a result,the policy concept is not clear and the policy practice is in a dilemma.Based on the perspective of public policy,the S-CAD approach is chosen to divide policy tools into'value-objectives-means-results'.This article introduces the elements of'institutional management'and divides them into three elements:'value objectives—control means—institutional management'.Combined with development paths,it is divided into three major elements:balancing development and protection,matching supply and demand,and combining rigidity and flexibility,in order to discuss the internal mechanism of the delineation and management of urban development boundaries in China.Secondly,the urban development boundary is more policy-oriented in small towns.Taking the practice of delimiting the urban development boundary in Taicang in Jiangsu Province as an example,the technical thinking of the three elements of'value target—control means—system management'is proposed.In terms of value target,adhere to the limitation of protection principle,balance the relationship between development and protection.In terms of control technology,coordinate the supply and demand relationship between the spatial structure and the total construction volume through adjustment and optimization of construction land.In terms of institutional management,faced with the uncertainty of urban development,rigid control and stable protection of the area,flexible pre-control all kinds of development space,to achieve short-term and long-term development goals.Finally,relevant recommendations are formulated for the delineation and management of urban development boundaries of small towns in China.