统一国土空间用途管制制度的学理问题思考——基于土地发展权的视角

REFLECTIONS ON THE ISSUES OF DOCTRINES AND PRINCIPLES OF THE UNIFIED TERRITORIAL SPACE USE REGULATION SYSTEM FROM THE PERSPECTIVE OF LAND DEVELOPMENT RIGHTS

统一国土空间用途管制制度的实质是对土地发展权进行限定,并涉及国土空间分层的全域、全要素,涵盖国土空间规划编制、实施、监督的全流程,是当前国土空间规划工作的核心内容。在此基础上,回答统一国土空间用途管制制度“管什么和怎么管”的问题。首先,构建统一国土空间用途管制制度的基本框架以明确该制度所涵盖的所有内容。其次,梳理出该制度在实践中出现的实务问题背后的学理问题,并基于我国国有土地和集体土地的土地发展权与所有权权能的不同关系,从限定土地发展权和实现土地所有权、使用权权利的视角出发,针对不同用地权属和权能,形成涵盖“管制的边界和权限,管制的编制方式方法和实施手段,管制后权利的补偿和拓展方式”的普遍性和特殊性的管制逻辑。

The unified territorial space use regulation system is the core content of current territorial planning.Its essence lies in the definition of land development rights,involving the hierarchical total factors of the entire territorial space domain,covering the whole process from the formulation to the implementation and supervision of territorial planning.On this basis,this paper answers the questions of“what to regulate and how to regulate”in the unified territorial space use regulation system.Firstly,it develops a basic framework for the unified territorial space use regulation system to clarify all the content covered by the system.Secondly,it summarizes the issues of doctrines and principles behind the practical issues that arise in the implementation of this system.Based on the different relationships between land development rights and the ownership rights of state owned and collectively-owned land in China,and from the perspective of regulating land development rights and realizing land ownership and use rights,it develops the basic regulation logic of universality and specificity for different land use rights and authorities,including“regulation boundaries and authorities,regulation plan formulation methods and implementation measures,and compensation and expansion methods for rights after regulation”.