规划管理、空间管制机制与规划协调——以S市规划体制改革试点为例

发布时间：2018-07-08 08:42

本文选题：“三规” + 规划协调　；参考：《城市规划》2017年02期

【摘要】：空间规划作为市场经济的治理工具,其空间融合和政策协调的核心功能越来越受到国内外学者的关注。改革开放后,计划经济时代下的部门分割的空间规划协调机制已经逐渐不适应空间发展新的政治经济环境。空间规划间的协调也因此受到各界普遍关注。在试图构建规划管理、空间管制机制与规划协调关系的分析框架后,以S市"十一五"时期规划体制改革试点为案例,探讨我国市县规划协调面临的诸多困境。一方面,相比"十一五"前的规划编制协调,由于2000年以来部门规划趋于综合性,并都试图从部门内加强空间管制,以及S市经济快速的发展增加对土地的旺盛需求,导致了"三规"协调的环境更加复杂。另一方面,受到政绩考核和权力下放、财权和事权、规划审批和实施不匹配的影响,规划协调和空间管制沦为地方和中央博弈的手段。总之,地方以土地为中心的积累模式,中央政府土地指标的计划管制方式,结合规划部门管理的分割造就了S市空间规划间各种矛盾。
[Abstract]:As a governance tool of market economy, spatial planning has attracted more and more attention from scholars at home and abroad. After the reform and opening up, the spatial planning coordination mechanism of the division of departments in the planned economy era has been gradually unable to adapt to the new political and economic environment of space development. Therefore, the coordination between spatial planning is generally concerned by all walks of life. After trying to construct the analysis frame of planning management, spatial control mechanism and planning coordination, taking the pilot project of planning system reform in the 11th Five-Year Plan period of S city as a case, the paper discusses the difficulties faced by planning coordination of cities and counties in our country. On the one hand, compared with the coordination of planning and preparation before the Eleventh Five-Year Plan, as the sectoral planning has tended to be comprehensive since 2000, and has tried to strengthen space control from within the sector, as well as the rapid economic development of S City, it has increased the strong demand for land. This led to a more complex environment for coordination among the three rules. On the other hand, due to the influence of performance assessment and decentralization, financial power and administrative power, planning approval and implementation mismatch, planning coordination and space control become the means of local and central game. In a word, the accumulation mode of the local land as the center, the plan and control mode of the central government land index, and the division of the planning department management bring up all kinds of contradictions among the spatial planning of S city.
【作者单位】：中国科学院南京地理与湖泊研究所;中国科学院流域地理学重点实验室;香港中文大学地理与资源管理学系;
【基金】：北京大学-林肯研究院研究基金项目(FS20150901) 江苏省自然科学基金项目(BK20161088)资助
【分类号】：TU984

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