面向实施的市级国土空间规划传导思路与技术方法

Research on the ideas and methods of conducting technology for implementation of territory spatial planning

规划传导是保障国土空间规划实施的关键环节,从理念层面的治理转型、规则层面的事权匹配、空间层面的要素管理入手,对市级规划传导的技术思路与方法途径进行了研究。研究表明:空间规划具有的基础性、有限性和动态性等特征是规划传导的基础出发点,应建立起涵盖理念宽度、事权力度和要素精度的规划传导框架。在此基础上提出双向反馈、权责清单、刚弹结合、尺度容差、动态平衡等技术思路来分步推进规划传导,并以广州为例提出了规划传导实施层面的方法途径,为建立能用、管用、好用的规划传导政策规则和体制机制,为完善国土空间规划体系和推动规划有效实施提供研究支撑。

National territory spatial planning is a guide for national spatial development, a spatial blueprint for sustainable development, and an important starting point for improving the modernization of the national spatial governance system and governance capabilities.Therefore, it is essential to promote the effective implementation of national territory spatial planning. Planning transmission is a key link to ensure the implementation of national territory spatial planning. There are several reasons for problems in the compilation and implementation of national territory spatial planning. Due to the lag of planning theories and methods, and the limitations of local practice, existing research results emphasize the vertical transmission of rigid constraints, functional zoning, spatial elements, etc. People are currently inadequately considering the transformation of space governance in the New Era, the unification of administrative power management boundaries, and the accuracy control of the transmission of spatial elements, which has led to the defect in transmission of technical ideas for national territory spatial planning. This article is based on the preparation and pilot practice of Guangzhou’s land and space planning, starting with the transformation of governance at the conceptual level, the matching of government duties at the system level, and the management of elements at the technical level, to explore the integrating spatial governance into planning transmission, the rigid constraints of national will and the flexible guidance of local competitiveness, and the intensity and precision of administrative control at different spatial scales. The paper points out that planning transmission should adopt technical ideas such as two-way feedback, power and responsibility list, rigid and elastic combination, scale tolerance,dynamic balance, etc., to solve the key issues of planning transmission between different levels of master plans, and between master plans and detailed plans. It further proposes that planning conduction is not simply a "top-down" vertical conduction, but should also include "two-way feedback" in response to local development demands and specific field regulations, and a rigid conduction mechanism must be used to transmit strategic intentions downwards. When dealing with the relationship between the government and the market, it is necessary to strengthen flexible control and guidance to enhance the flexibility and adjustability of planning;in terms of the transmission of spatial elements such as land zoning, control line delineation, special facility layout, etc., administrative control of different spatial scales should be grasped through the process of adapting the space from overall blur to partial clarity, from structure to map spots, from partition to plot, from demarcation to delineation, to clarify the tasks, permissions and control accuracy of each level of planning. Follow the dynamic balance principles of "constant scale, variable form", "constant standard, variable location" and other dynamic balance principles to allocate space resources in a reasonable and detailed manner to cope with the dynamic changes of the influencing factors of the planning and layout plan during the implementation process, so as to finally realize the ecological environment. The comprehensive balance of civilization and urban economic development, rigid constraints and flexible adjustments, refined management and fuzziness. The results can provide research support for improving the national territory spatial planning system in the era of ecological civilization and promoting the effective implementation of planning.