国土空间规划中“三区三线”改革的立法难题与纾解

Legislative Difficulties and Mitigation of the Reform of Three Zones and Three Lines in the Territorial Space Planning

国土空间规划中的“三区三线”改革旨在形成生态文明时代“区”与“线”分工协作的空间治理新路向,以弥合既有规划法治因“区线”同质化而产生的财产权限制过度与重要法益保护不足的问题。“三区三线”的重要创新在于对“山水林田湖草沙”资源聚合后的整体生态价值予以独立识别,这与既有规划的经济有用性导向相抵牾。“三线”改革谋求依据生态、农业等法益价值的重要性程度设定差异性空间管控,与现行指向个体资源利用行为的均质化点状管制模式存在掣肘;“三区”改革实行主导功能下的空间兼容性利用,与土地“单一用途”管制规则形成冲突。鉴于此,有必要依托“管制线”和“功能区”的差异化设置提升管制强度以符合于比例原则,并确立“区线”协同后“以所处空间定权利权能”的规划实施效果。具体而言,应通过赋予生态优先以基本原则的法律地位、构建“三线”在内外部行政中的双重空间管制路径、完善“主体功能—用途选择”的空间规划实施制度来推动“三区三线”改革的立法转化。

The reform of three zones and three lines in territorial spatial planning aims to form a new direction of spatial governance featuring the division of labor and cooperation between zones and lines in the era of ecological civilization,solve the problem of excessive restriction of property rights and insufficient protection of important legal interests arising from the homogenization of line and area in existing planning.The reform of three zones and three lines independently identifies the overall ecological value of the aggregated resources of mountains,waters,forests,fields,lakes,grasses,and sands,which contradicts the economic usefulness orientation of previous planning.The three lines reform is a differentiated spatial control set based on the importance of ecological,agricultural and other legal interests,which is constrained by the current homogenized point control model that focuses on individual resource utilization behavior.The spatial compatibility utilization under the dominant function of the three zones reform has shaken the traditional single use regulation rules of land.As a relief,it is necessary to rely on the differentiated setting of control lines and functional zones to the allocate the intensity of control proportionally,and clear that the planning and implementation effect of determining rights and powers based on the space is exerted.Therefore,the legislative transformation of three zones and three lines should be promoted by giving ecological priority the legal status of the basic principle,constructing the dual control path of three lines in internal and external administration,and improving the spatial planning implementation system of main function-use selection.