控制性详细规划的法律定位及控制  

Legal Positioning and Control of the Regulatory Detailed Plan

作　　者：李泠烨 Li Lingye

机构地区：[1]上海师范大学哲学与法政学院

出　　处：《中国法学》2024年第4期250-269,共20页China Legal Science

基　　金：2019年度国家社科基金一般项目“国土空间规划法改革研究”(项目批准号:19BFX056)的阶段性成果。

摘　　要：在实践中,控制性详细规划的法律性质难以被简单归入行政行为或行政规范性文件。控制性详细规划作为相关土地使用状态的设想,由于被城乡规划法设定为规划许可依据,转而构成了具体地块上未来建设行为所附义务的框架,并在实施中动态调整。该义务框架是基于规划法“目的—手段”模式授予的形成自由,由行政确定法定多元的规划目的的具体指向,设置、选择相应手段,在具体关联情境中综合权衡多元利益而持续形成的。基于设定方式应整体观之,控制性详细规划实质是形成特定空间秩序的交互一体行政机制。这改变了规范制定与执行相分立的模式,规划法有必要应对形式合理性和稳定预期等方面的挑战,加强对行政自主过程的法律控制,限定规划手段的设定权限,设置多元利益识别、交涉及权衡制度,保障规划知识的法律化以及全过程评估制度。In practice,it is difficult to simply classify the regulatory detailed plan into administrative acts or administrative normative documents.The regulatory detailed plan is a draft of the future use status of some specific sites,which is used as the legal basis for planning permission,and thus constitutes the framework of the obligations attached to the construction act,which is further specified in the implementation and can also be dynamically adjusted.Planning law grants setting the framework of obligations in a'goal program'model with a great deal of discretion of formation.The administration can determine the concretization direction of the statutory multiple comprehensive purposes,and set up and select the planning means that match them,weigh multiple interests in specific related contexts,and form a specific spatial order.Thus,based on the overall view,the regulatory detailed plan should be regarded as a mechanism for the administrative interaction between the setting and implementation of a specific spatial order,which changes the pattern of separation of rule-making and enforcement.Therefore,the planning law has been challenged in terms of formal rationality and stable expectations,and the control of the administrative autonomy process should be strengthened by the determination of planning means,the establishment of multi-interest identification,negotiation and weighing mechanisms,the legalization of planning techniques,and the improvement of implementation evaluation.

关 键 词：控制性详细规划 “目的—手段”模式 规划权衡 交互一体行政机制 多元行政任务 

分 类 号：D922.297[政治法律—经济法学] D922.1[政治法律—法学]