寻求强控与发展的平衡——空间规划央地协同治理的国际经验与启示  

Seeking the Balance Between Strong Regulation and Development:Foreign Experiences of“Central-Local”Co-governance in Spatial Planning

作　　者：张佶 李亚洲[1] 刘冠男[1] 叶宸希 Zhang Ji;Li Yazhou;Liu Guannan;Ye Chenxi

机构地区：[1]广州市城市规划勘测设计研究院政府规划编制部

出　　处：《国际城市规划》2021年第4期82-90,共9页Urban Planning International

摘　　要：作为空间资源管治的直接手段,空间规划关注的一大重点即央地事权的平衡与共治,城镇开发边界和生态地区则成为平衡央地事权、集中体现央地"管控与发展"诉求的焦点。由于政治体制、社会发展阶段、空间规划体系的巨大差异,不同国家央地平衡与共治的前提、重点和举措各有不同。本文选取美国波特兰大都市区、荷兰兰斯塔德、英国大伦敦地区为研究对象,探求在"地方主导""央地协商共赢""中央强控"这三种类型的空间规划体系下,城市增长边界和生态地区管控的主要做法。笔者认为,不管在中央强控还是地方主导的空间规划体系中,央地双方都致力于通过"区域统筹"和"弹性机制"等方式,在土地发展和规划事权上不断博弈,在中央强控与地方发展之间寻求最佳平衡。在此基础上,笔者结合我国国土空间规划改革,对我国国土空间规划中的城镇开发边界划定和生态地区保护,以及如何在保护中谋求地方发展提出建议。As a direct means of spatial resource governance in China,the major focus of spatial planning is the balance and co-governance of central and local authorities.In this context,the urban development boundary and ecological zones become the focal points for balancing central and local authorities and focusing on the demands of"central control and local development".However,due to the great differences in institutional settings,development stages,and planning systems,there are huge disparities in terms of the prerequisites,priorities,and measures for cogovernance between different countries.Taking Portland Metropolitan area in the USA,Randstad in the Netherlands,and Greater London in the UK as examples,this paper discusses the good governance practices of urban growth boundary(UGB)and ecological zones in three different types of spatial planning systems respectively,which could be concluded as"local-led","moderated",and"central-controlled"modes.The paper demonstrates that in both central-controlled and localled spatial planning systems,both the central government and local authorities are committed to wrestling over land development rights through specific planning tools,such as"regional coordination"and"flexible mechanism",to find the best balance between the top-down strong regulation and bottom-up development demands.On this basis,the paper puts forward some suggestions on the demarcation of UGB and ecological zones,as well as balancing the economic development with ecological protection for China’s territorial spatial planning.

关 键 词：空间规划 央地关系 城市增长边界 城镇开发边界 生态地区 土地发展权 

分 类 号：TU984[建筑科学—城市规划与设计]