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  

PLANNING ADMINISTRATION,SPATIAL REGULATION MECHANISMS,AND PLANNING COORDINATION:A CASE STUDY OF PLANNING SYSTEM REFORM IN S CITY

作　　者：王磊[1] 沈建法[2] 

机构地区：[1]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 [2]香港中文大学地理与资源管理学系

出　　处：《城市规划》2017年第2期18-26,共9页City Planning Review

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

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。As a governance instrument in the market economy, spatial planning is highly valued all over the world for its key functions of spatial integration and sectoral policy coordination. Since the reform and opening, the old regime of spatial planning coordination under the centrally planned economy could not adapt with the changing context of political economy. The coordination of spatial planning thus has been widely concerned from all fields of society. By using a case study of the demonstration reform of planning system in S City, this paper tries to build an analytical framework of planning administration, spatial governance mechanism and their relations with spatial planning coordination to discuss the difficulties and dilemmas of planning coordination in municipalities and counties in urban China. On the one hand, compared with the situation of spatial planning coordination before the 11th Five-Year Plan period, since 2000, the sectoral planning has become comprehensive and tended to strengthen spatial control from within the department. Also taking account of the strong demand of land resulted from rapid economic growth, ＂three plans integration＂ was confronted with more complicated planning background. On the other hand, under the mismatch of official performance examination and local empowerment, financial powers and responsibilities, as well as the bodies of planning approval and implementation, the spatial plan coordination and development control have become the main contested arenas of the central and local government in spatial governance. In conclusion, the accumulation mode of local landcentered development, the top-down governing of land supply through the command approach, and the fragmented planning administration have resulted in the conflicts among various spatial plans in S City.

关 键 词：“三规” 规划协调 空间管制 市县 

分 类 号：TU984[建筑科学—城市规划与设计]