基于“地权”“域权”视角的国土空间规划思考与广东实践

Ref lection on Territorial Space Planning and the Practice of Guangdong Based on the Perspective of “Land Rights” and “Territorial Rights”

研究目的:解析各层级国土空间规划行使的“域权”及规制的“地权”,从省级、城市两个空间尺度解析广东基于“地权”“域权”考量下的国土空间规划探索,为全国国土空间规划编制实践提供参考。研究方法:历史分析法、案例研究法。研究结果:(1)对土地实施用途管制本质上是对土地承载的各种权益即“地权”的规制。(2)基于对土地权利的界定和管理,空间规划成为不同层级政府代表国家行使配置和管理“地权”的公共政策,不同层级的空间规划单元享有特定的“域权”。(3)广东从省级、城市两个空间尺度,在国土空间规划中探索统筹不同空间尺度的“域权”,以通过提高政府在配置资源中与社会需求的匹配性来协调自然资源与人类社会经济发展的关系。研究结论:(1)国土空间规划对“地权”配置起决定性作用,涵盖政府与政府、政府与土地权利人、土地权利人之间的空间发展权益配置。(2)国土空间规划编制要基于对“地权”的界定和保护的原则下,凝聚不同空间尺度“域权”的力量,以实现保障国家安全、满足国家发展需求、促进资源资产增值“三大目标”。(3)基于广东实践,省级“域权”重点是贯彻落实国家意志,构建保护与发展相协调的国土空间开发保护格局,协调空间资源总量与布局;城市“域权”重点是优化调整城市功能空间组织,协调好政府、社会、市场利益及土地使用权人的空间价值权益。

The purposes of this study are to analyze the “territorial rights” exercised and the “land rights” regulated by territorial space planning at all levels,and to analyze territorial planning exploration in Guangdong based on the consideration of “land rights” and “territorial rights” from the provincial and urban spatial scales,to provide reference for the territorial space planning practice.The research methods include case study and history analysis.The results show that:1) the implementation of land use control is essentially the regulation of various rights and interests carried by land,that is,“land rights”.2) Based on the definition and management of rights carried by land,spatial planning has become a public policy for different levels of government to exercise the allocation and management of “land rights” on behalf of the state,so these spatial units at different levels control specific “territorial rights”.3) From the provincial and urban spatial scales,Guangdong explores the integration of “territorial rights” of different spatial scales in the territorial space planning,so as to coordinate the relationship between natural resources and human socio-economic development by improving the matching between the government and social needs in the allocation of resources.It concludes that:1) territorial space planning plays a decisive role in the allocation of “land rights”,covering the allocation of rights and interests for spatial development between the government and the government,between the government and land owners,and between land owners.2) The compilation of territorial space planning should be based on the principle of defining and protecting “land rights”,and should pool the power of “territorial rights” of different spatial scales to achieve the “three goals” of safeguarding national security,meeting national development needs,and promoting the appreciation of resources and assets.3) Based on the practice of Guangdong,the provincial “territorial rights” focuses on implementing the national will,building a territorial space development and protection pattern that coordinates protection and development,and coordinating the total amount and layout of spatial resources.The focus of urban “territorial rights” is to optimize and adjust the spatial organization of urban functions,and coordinate the spatial value rights and interests of the government,society,market and the land use right holders.