关于国土空间规划立法模式的探讨

DISCUSSION ON THE LEGISLATION MODES OF TERRITORIAL PLANNING

本文从本体论、功能论、建构论的视角,探讨了国土空间规划立法制度中的3个基本议题:(1)在立法本体方面,认为国土空间规划法是关于规制土地使用的法,是关于规范规划权力的法,是关于建构空间秩序的法。(2)在法律性质方面,提出国土空间规划体系的法律是以行政法为主体,并兼有经济法、社会法、环境法功能的综合法,以发挥在国家治理中的基础性作用。(3)在立法模式方面,建议采用二元主干立法的模式,以更好统一行使国土空间用途管制职权。《国土空间开发保护法》是从横向角度对开发与保护行为进行统一规范的立法,而《国土空间规划法》则是从纵向角度对各级政府及其自然资源主管部门进行统一授权的立法。

From theperspectiveof ontology,function theory,and constructivism,this paper discusses the three basic issues in the legislative systemof territorial planning.In terms of the legislative ontology,the paper holds that the law of territorial planning is about the standardization of land use,the regulation of planning authority,and the establishment of spatial order.In terms of the nature of the law,the paper regards that the laws related to the territorial planning system are mainly administrative laws,combined with the functions of economic law,social law,and environmental law,so as to play its basic role in the national governance.In terms of the legislation mode,the paper suggests that the dual main legislation mode should be adopted,so as to realize the unified exercise of the use control power of theterritorial space.The Territorial Development and Protection Lawis a horizontal law that regulates both development and protection behaviors,while the Territorial Planning Law is a vertical law that authorizes the governments at all levels and their departments in chargeof natural resources.