关于上海构建乡村地区国土空间规划体系的实践与思考

Practice and Reflection on the Construction of Territorial Spatial Planning System in RuralAreas in Shanghai

乡村地区的国土空间规划是乡村空间治理的核心工具,既发挥基础性作用,又具有引领性和策略性作用,兼顾用途管制和治理行动。近年来,上海以郊野单元村庄规划为核心,整合村庄设计、国土空间用途管制和全域土地综合整治,形成“1+3”的乡村空间治理路径,推动乡村地区规划的编制审批、实施监督、法规政策和技术标准体系逐步完善,呼应了乡村地区国土空间规划向实施、治理和服务的外延扩展需求,通过探索国土空间目标管控和治理行动动态优化的有机统一,在详细规划层面初步构筑了能动治理逻辑。具体而言,上海市乡村地区的国土空间规划体系构建包括了3个维度,纵向上明确各级国土空间规划的作用和核心内容,逐级传导落实乡村地区的资源利用和保护要求,优化国土空间格局;横向上协调各行政管理部门职权和利益相关主体,回应基层核心关切,提高资源配置效率;时间维度上整合政策工具、搭建实施平台、规范土地管理,建立长效管理和协同治理机制。

Territorial spatial planning in rural areas is the key tool of rural space governance,which plays fundamental,leading and strategic roles,and takes into account land use control and governance actions.In recent years,Shanghai has taken the rural unit village planning as the core,integrating village design,land use control and comprehensive land reclamation,and formed a'1+3'rural space governance path.It has promoted the gradual improvement of the planning compilation,approval,implementation and supervision,laws,policies and technical standard system in rural areas,echoing the trend of extension to implementation,governance and services in rural area spatial planning.By exploring the organic unity of space target management and control and dynamic optimization of governance actions,a dynamic governance logic has been initially constructed at the level of detailed planning.Specifically,the construction of the spatial planning system in rural areas of Shanghai includes three dimensions.Vertically,clarifying the role and core content of territorial spatial planning at all levels,conducting and implementing the requirements of resource utilization and protection in rural areas level by level,optimizing the spatial pattern.Horizontally,coordinating the functions and powers of various administrative departments and stakeholders,responding to the core concerns of the grass-roots level,and improving the efficiency of resource allocation.In terms of time,integrating policy tools,building implementation platforms,standardizing land management and establishing long-term management and collaborative governance mechanisms.