对国土空间规划构建的思考——前提、基础、保障与支撑

Reflection on Territorial and Spatial Planning Construction–Precondition,Foundation,Guarantee,and Support

文章对新时代我国新型国土空间规划的构建逻辑进行思考,从构建的前提、基础、保障与支撑四个方面提出国土空间规划构建的建议与设想。文章基于系统观和大科学观的思考,结合空间规划改革试点实践,梳理已有研究成果,提出未来新型国土空间规划的对象界定、方法路径、实施管理、技术支撑等方面的创新路径。结果发现:①规划构建的最大前提是,国土空间的内涵不是单纯的土地或空间,而是一个以国土空间作为载体,承载了人与自然的全要素、时空演化的整体系统;②新的国土空间规划的技术方法基础,在于树立整体性思维的基础上对原有各类规划原理、思路方法的有机整合,更需要将要素的系统关联重点纳入规划分析;③为保障规划的技术内容能够得到有效的实施,需要建立适应新空间规划的“评估—监管—问责—处罚”制度闭环,同时加强自然资源资产产权制度保障;④建立“全事实化”的信息平台全面赋能国土空间规划,彻底解决多规协同问题,并由此建立可靠有效的新型规划管理工具。文章认为:新国土空间规划的逻辑和思路将迎来一个新的转变,规划的原理、思维和方法应在系统整体观的角度进行深度整合,规划的制度同样需要一次重构和强化,规划对资源的配置将转变为对资源资产的配置,信息化工具将作为国土空间规划的全要素化管理的有力支撑。

The purpose of this paper is to figure out a rational framework of new territorial and spatial planning in the new era,and proposes suggestions and assumption for territorial and spatial planning construction from the four aspects of precondition,foundation,guarantee,and support.Based on reflection on the systematic perspective and the big scientific view,as well as the pilot practices of spatial planning reform,the paper summarizes existing research results,and proposes an innovative path of object definition,methodological path,implementation management,and technical support in new territorial and spatial planning.The study finds the following results.Firstly,the biggest premise of planning construction is that territorial space does not only refer to land or space,but refers to a whole system that uses territorial space as a carrier to carry the whole elements of human and nature and the evolution of time and space.Secondly,the primary method of new territorial and spatial plan making lies in the integration of methodologies belonging to all existed spatial-related planning based on the way of thinking systematically;more importantly,planning analysis components should include the relationship of spatial systems.Thirdly,in order to guarantee that the technical content of the plan can be effectively implemented,it is necessary to establish a closed“assessment-supervision-accountability-punish-ment”system that adapts to new spatial planning,and at the same time strengthen the protection of the property rights system of natural resource assets.Finally,an all-factor digitized information platform is suggested to be established as a technical support of territorial and spatial planning,to thoroughly solve the problem of multi-disciplinary coordination and to set up new plan making and management instruments.It is concluded that with changes in the logic and ideas of new territorial and spatial planning,the principles,thinking,and methods of planning should be deeply integrated based on a systematic thinking.In addition,the planning system also needs reconstruction and strengthening.The allocation of resources will be transformed into the allocation of resource assets,and the informationization tools will be a strong support for the full-element management of territorial and spatial planning.