发达国家国土空间用途管制探析

文章梳理分析了美、英、日、德等国在国土空间用途管制中的做法,认为协调统一的规划体系、完善的法律保障体系、"边界+管控"的国土空间功能分区管制手段和"分区+管制"的城市空间管制手段是确保管制效果的重要因素,并归纳出不同国家在国土空间用途管制中呈现出更加注重管制效率、管制的刚性与弹性、生态和可持续发展,以及决策的科学化和民主化等特点和趋势。通过对这些国家国土空间用途管制的探析,从国土空间规划体系、机制、规则、实施等方面对我国构建更加完善的国土空间管制制度提出建议。     

The trends in bioeconomy development in the European Union: Exploiting capacity and productivity measures based on the land footprint approach

Bioeconomy comprises a novel approach towards economic development in the European Union (EU). Its development should be confined by the planetary boundaries (biocapacity). We integrate the land footprint approach related to production and land biocapacity to assess the trends in capacity and productivity of bioeconomy in the EU countries throughout 1997–2013. Results show that the level of production-based land footprint and land biocapacity vary across the EU countries. However, Belgium is the sole case where production-based land footprint exceeds land biocapacity. The highest possibilities for development of the bioeconomy sector are observed for Slovenia, Croatia, Romania and Slovakia. Meanwhile, Estonia, Denmark and the United Kingdom have almost achieved the level of land biocapacity. Considering the catch up growth rate, almost all of the EU countries (with exception of Greece, France, Italy and Romania) show increasing footprint-to-biocapacity ratios with the highest values for Estonia and Latvia. The significant absolute decoupling between production-based land footprint and agricultural value added is observed in Denmark. Meanwhile, Italy, Lithuania and Spain show relative decoupling. Thus, these countries should pay particular attention to productivity improvements in forestry and agriculture. This study contributes to setting the targets for bioeconomy policy that can support the sustainable and efficient use of biological resources.     

The quest for a sustainable spatial planning framework in Zimbabwe and Zambia

Over the years, the Zimbabwean and Zambian governments have been facing severe spatial development inequalities. They have therefore put in place various policies and strategies in a bid to ensure equitable spatial development. Spatial planning, which refers to the distribution of land uses and people, not only focuses on the physical aspects of land but also on national economic, environmental and social policies. This paper examines spatial planning frameworks in Zimbabwe and Zambia and how they have influenced spatial planning. The effect of spatial planning frameworks on development reveals a close relationship between spatial plans and spatial planning outcomes. The study shows how changes in institutional and legal frameworks affects development in different sectors of the economy and that a holistic approach to planning promotes sustainable development without neglecting other sectors. The data for the study was drawn primarily from secondary sources through a review of documents such as statutes, local development plans and other statutory instruments. The study found that in order to achieve sustainable spatial planning, there is need for a sustainable framework to guide spatial planning. Sustainable spatial planning frameworks also control and promote spatial development in both Zimbabwe and Zambia. Both institutional and legal frameworks guiding spatial planning should be sustainable for the benefit of future generations.     

日韩国土规划新进展及对我国国土规划的启示

无论是日本的第六次国土规划修订,还是韩国的第四次国土规划修订,都有依法编制和实施动态性的国土规划、促进均衡国土和开放国土的建立、注重增强地方自主发展能力建设、强调规划编制过程中的公众参与等方面的特点。我国的国土规划应借鉴日、韩两国的作法,加强前期研究,推动国土规划立法;建立协调统一的国土规划体系,协调相关规划关系;开展以构建国土空间格局为主体的国土规划研究和编制工作,促进可持续发展;加强规划实施中经济手段的运用,协调政府与市场、中央与地方的关系。     

2018年土地科学研究重点进展评述及2019年展望——土地资源、利用与规划分报告

研究目的：总结2018年国内外土地资源、利用与规划领域的研究进展,展望2019年国内研究趋势。研究方法：文献调查法。研究结果：2018年国内研究侧重于土地资源资产、土地生态状况评估、土地利用视角下的碳排放、土地利用及其评价、国土空间规划、村级土地利用规划等方面;国外研究主要集中在土地资源配置与保护、土地生态、土地利用变化与可持续性、土地利用规划实践与应用等方面。研究结论：2018年土地资源、利用与规划研究在基础理论层面探索了国土空间规划体系的重构,深入分析了空间规划、国土空间用途管制与自然资源监管的关系,进一步明确国土空间开发保护制度的科学内涵,构建土地利用研究的框架体系;在实践层面探讨自然资源资产负债表编制中土地资源的核算方法,深化乡村振兴、多规合一视角下的村级土地利用规划研究,提出国土空间规划体系建立的构想。2019年的重点研究方向为：构建国土空间规划体系、加强土地资源理论研究、探索自然资源资产负债表和村规划编制研究、深化节约集约用地和农村土地利用问题研究等方面。     

从土地利用规划到国土空间规划 ——科学理性规划的视角

研究目的:深入探讨从土地利用规划到国土空间规划的重大变革,明晰国土空间规划的观念、体系、任务、方法和实施要求,以期对正在开展的国土空间规划编制工作提供参考。研究方法:文献研究法和比较分析法。研究结果:国土空间规划要着力强化可持续发展、高质量发展、以人民为中心的发展观念,在规划体系建设中处理好空间规划与发展规划,国家规划与地方规划,总体规划与专项规划、详细规划之间的关系,把重塑国土空间开发保护格局和推动自然资源节约集约利用和自然资源资产保值增值同时作为新时代规划的主要任务,全面推进空间规划基本理论、基础性方法和前沿性方法研究,创新规划实施的行政、法治、经济、社会和技术机制。研究结论:国土空间规划作为空间规划体制改革的产物,既要继承包括土地利用规划在内的原有空间规划的优点,也要注意克服其不足,根据国土空间治理现代化的战略需要,在规划观念、规划体系、规划实施等方面进行全方位、重构性变革,发展具有中国特色的空间规划理论和方法。     

2017年土地科学研究重点进展评述及2018年展望——土地资源、利用与规划分报告

研究目的：总结2017 年国内外土地资源、利用与规划方面的研究进展,展望2018 年国内研究趋势。研究方法：文献调研法。研究结果：2017 年国外研究主要集中在土地资源的保护与管理、土地生态问题与生态恢复、土地利用变化驱动及影响、土地利用规划观念与技术等方面;国内研究侧重于土地资源配置、土地生态、土地利用及其评价、土地利用管控以及规划理论与实践创新等方面。研究结论：2017 年土地资源、利用与规划领域在基础理论层面进一步基于时空锥理论研究了规划机理,提出了科学认知 “多规合一”的理念,初步探索了供给侧结构性改革和土地利用规划的关系;在实践层面提出了“一张蓝图”、“多规合一”的技术路径,探讨了空间规划体系的建构与规划的核心任务,探索了村级土地利用规划的现存问题与未来编制工作重点。创新具有中国特色的土地利用规划理论和方法、构建国土空间开发保护制度、推动“土地用途管制”向“国土空间用途管制”发展、推进基于生态文明建设视角的空间规划体系创新、深化土地节约集约利用、土地领域供给侧结构性改革研究将是2018 年及未来土地资源、利用与规划领域着重研究的方向。     

西方农地法的特点及启示

西方农地管理有着丰富的经验和有力的法律基础.本文立足于我国实行最严格的土地管理制度,在系统总结西方,尤其是欧洲农地法特点的基础上,采用比较分析的方法,对我国土地资源管理法律建设的重点问题进行了探索.研究表明,政府对农地最终处置权的享有、区域规划的突出地位、农地转让及农场规模的控制以及可持续发展思想的充分体现是西方农地法的主要特点.这些特点给了我们以下一些启示:①应加强区域规划和土地利用规划相互关系的研究;②积极探索农地管理的市场机制及其实现形式;③重视我国农地取得方式问题和农地细碎化现象;④及时将农地保护以数量保护为主转变为农地的数量、质量和生态环境保护并重的三维保护体系.     

2022年土地科学研究重点进展评述及2023年展望

研究目的：总结2022年国内外土地科学研究的重点进展，展望2023年中国土地科学的发展趋势及《中国土地科学》重点关注方向。研究方法：文献调查法。研究结果：2022年国内研究重点关注自然资源资产产权制度改革、土地要素市场化改革、宅基地“三权分置”、农地确权与流转、耕地资源可持续利用、土地绿色低碳利用、全域土地综合整治、国土空间格局优化与生态修复等科学问题；国外研究重点关注非正式制度与土地产权保护、土地市场建设、土地制度改革评价、空间规划与可持续发展、土地资源优化配置与整治、自然资源治理与信息技术革新等问题。研究结论：围绕严守资源安全底线、优化国土空间格局、推进绿色低碳发展、维护资源资产权益等战略需求，2023年《中国土地科学》将重点关注耕地资源可持续利用与粮食安全、国土空间用途管制与土地要素市场化配置、国土空间生态修复与土地绿色低碳利用、自然资源资产产权制度改革与权益实现等相关研究问题及选题方向。     

Towards sustainable rural development in Central and Eastern Europe: Applying land consolidation

Over the past twenty years, social and economic decline in rural areas has intensified in the Central and Eastern European countries. A precondition for the reversal of this decline is the implementation of new policies in relation to the fundamentals of land ownership and management. In addition to addressing the problems of land ownership fragmentation, these should include measures to improve agricultural production and employment, taxation policy, and legislation to protect land ownership rights, within the context of acknowledging environmental and sustainability considerations. In Europe, the requirement for readjusting unfavourable land fragmentation and promoting the appropriate use of land combining with positive environmental solutions is expected to create new sustainable land management systems. The consolidation of land ownerships may be an effective and active land management instrument which not only addresses the problems of land fragmentation, but also, if applied sensitively, may be an instrument for delivering sustainable rural development in a wider context. The aim of this research is to investigate land consolidation as an essential tool to create sustainable rural areas in Lithuania.     

我国农村土地整治的发展态势与重点研究领域

土地整治是为提高土地生产承载能力而实施的一项涉及到资源环境、社会经济、政策制度等多方面持续、动态的系统工程.从国家的战略部署、目标的现实转变、统筹城乡与促进农业现代化、社会经济发展阶段等方面对土地整治提出了战略需求,指出了当前土地整治应从完善整治规划编制体系、建立监测-评价-调控系统、推进整治制度创新、加强生态景观建设整治等4个领域来重点研究.结果表明:在土地管理从数量向数量、质量、生态管护转变中,土地整治越来越趋于综合化发展.     

The interrelations of land ownership,soil protection and privileges of capital in the aspect of land take

The novelty of this study lies in the analyses of legislation concerning land use policies by examining the specific boundary between land ownership and land take. The basic motive was that the European Commission (EC) withdrew the Soil Framework Directive (SFD) in 2014 following the objections of certain Member States (MS) who countered that as most lands are privately owned, they should not fall under the remit of public governance. Since the withdrawal of the SFD land take is an issue receiving more attention. The legal content of ownership rights has been subjected to constant debate in the context of land-use policies and planning practices, which raises the questions of who decides how the land can be used and whether administrative authorities give priority to non-agricultural uses. Our study seeks to explore these issues through the lens of property law by comparing different legislations on access to land on three levels of policy implementation: the EU, the national, and the local levels. MS legislations are highlighted through the example of Hungary in two aspects: (1) regulation regarding Access to Land and Land Ownership Rights (ALOR), and (2) legislation and results of the LANDSUPPORT decision support system concerning Land Take Changes (LTC). We designed figures to demonstrate how policymakers can use the new LANDSUPPORT platform to show the gaps and inconsistencies among the above aspects. We found that the legislative regulations concerning private land use to achieve soil protection objectives remain the weakest link in the environmental protection legislation of the EU. Anxieties concerning built-in legal guarantees on each of the studied levels actualise our research. Currently, global land management is not on the political table although common European legislation might be able to preserve land for agricultural use.     

Regional drivers of land take: A comparative analysis in two Italian regions

Recent research has focused on quantitative measurement of land take at both the international and the national level, so much so that systematic information has been collected and made available at the EU level. However, not much literature has up to now explored the quantitative relationship between factors affecting land take and land-taking processes. Moreover, still little investigated is the relation between land-taking processes and territorial policies and plans.By building upon previous studies on the identification of the main drivers of land take and on the analyses of the influence of such drivers on the phenomenon at the regional level, this paper aims at understanding whether the drivers act similarly in different contexts. Of particular interest here is the role played by planning-related factors, since, in a planning system in which many competences are devolved to regions, regional plans lay their own set of rules and regulations, which might (or might not) effectively counter land taking processes.We choose to explore this issue by looking at two coastal Italian regions, as coastal areas’ intrinsic territorial fragility and residential polarization might significantly amplify the magnitude of negative impacts associated with land take.     

Planning consistency and implementation in urbanizing China: Comparing urban and land use plans in suburban Beijing

The evaluation of the extent to which urban and land use planning have achieved their objectives is crucial to better management of urban land development. China’s urban and land use plans have the common purpose of controlling urban sprawl. This research aimed at comparatively assessing the consistency and implementation of these plans, considering the Changping District in suburban Beijing as a case study. Three main findings were obtained: (1) each plan used different strategies to control new developments, and there were several quantitative and spatial conflicts between the two plans; (2) neither plan has been well implemented or effective in controlling urban sprawl, despite the slightly better performance of the land use plan; (3) core-periphery decreasing trends were revealed in land quota allocation and effectiveness of planning implementation. Remote regular towns received the least land resources from the top-down planning system but also developed fast, mainly through informal and illegal approaches. Further investigation into the double failure of China’s current spatial planning system in quantitative and spatial control over urban land development requires a deeper integration of various spatial management systems, a fundamental transformation of planning philosophy, and a higher respect for peripheral areas in urban-rural integration. The planning assessment approach and reform recommendations developed on the basis of the Chinese practice are probably referable for other developing countries facing similar processes of rapid urbanization and imperfect spatial management.     

The River agreement in Italy. Resilient planning for the co-evolution of communities and landscapes

According to the “evolutionary” approach (Davoudi & Al., 2012), urban resilience implies that urban systems have capacity to react to several external disturbances - economic, social, environmental - regarding all components of urban governance and transforming itself in a new development model.River basins are considered an interesting space for experimental workshop on resilience, as a driver of territorial policy, for ordinary communities and landscapes, where the relationship between the sustainable use of territorial resources could led to new territorial strategies, as well as “promote managements synergies” at different levels of regional and local planning.River Agreements (RA) appear as an innovative governance method which can help in the drafting of potential plans and practices for the development of resilience in fluvial territories. It is a form of negotiated planning, that helps to involve social actors in order to: improve people’s knowledge of current territorial conditions and the effects of human activities; increase social awareness; include society in the identification and implementation of solutions; to encourage innovative changes in planning objectives and urban and architectural design, starting with the legal and planning framework of an Action Plan. Starting from the ‘80 s, RA were experimentally tested in Belgium and France and currently widespread also in Italy. In Piedmont Region (Italy), it is recognized as a successful territorial governance tool used to define shared strategies, measures, rules and projects. We will present the case study of the Sangone River Agreement as the first participate planning and design experience in Piedmont signed by local actors.     

2016年土地科学研究重点进展评述及2017年展望 ——土地资源、利用与规划分报告

研究目的：总结2016年国内外土地资源、利用与规划方面的研究进展,展望2017年国内研究趋势。研究方法：文献调研法。研究结果：2016年国外研究主要集中在土地资源价值评估与保护、土地生态、土地利用变化的驱动因素与生态影响、土地利用规划理念与技术等方面;国内研究侧重于土地资源配置、土地生态、国土空间分类、土地利用评价、土地利用管控策略以及规划协同与创新等方面。研究结论：2016年土地资源、利用与规划领域创造性地提出了基于土地科学发展时空锥理论而衍生的国土空间系统认知理论,探索了面向新型城镇化和生态文明建设的国土空间分类体系,提出一系列空间规划改革构想和建议。土地资源基础理论研究、国土空间合理利用评价、国土空间用途管制机制与国土空间规划体系的建立将是2017年及未来土地资源、利用与规划领域着重研究的方向。     

Evaluating the effectiveness of land use master plans in built-up land management: A case study of the Jinan Municipality,eastern China

China has implemented land use master plans to strictly control built-up land usage. The effective evaluation of land use master plan on controlling construction land is the premise of monitoring and early warning of planning implementation. It is also the basis for planning revision and further implementation of territorial spatial planning. In this study, we established a comprehensive index system based on three aspects: scale management, annual growth rhythm control, and spatial layout. We then analyzed the consistency between the actual situation for built-up land and the previous land use master plan of the Jinan Municipality in the Shandong Province of eastern China. The results showed that the master plan effectively controlled the scale of built-up land sprawl, such that the annual growth rhythm control level periodically increased over time. They also indicated the low efficiency of the built-up land spatial layout control. Overall, the previous land use master plan in Jinan had notable impacts. We recommend that land policy makers should adjust control standards and implementation intensity for spatial planning in the future to achieve scientific and effective planning for the management of construction land.     

区域性国土规划空间分区研究

国土规划是一个国家或区域高层次的综合性规划,其主要任务是通过合理配置国土资源、优化国土开发空间、保护生态环境、统筹区域和城乡发展,保障区域可持续发展,是政府优化配置国土资源、进行国土空间治理的重要手段。本文基于省级和区域性国土规划的实践,创新了国土空间划分技术方法。     

The actual impact of comprehensive land-use plans: Insights from high resolution observations

Like most EU and US planning systems, planning in Israel aims to promote certainty regarding future development by employing statutory land-use plans for stabilizing and binding the development of land use. In Israel, district planning from the 1980s onwards took place in the form of long-term land-use plans. However, in practice, Israeli planning witnessed a movement toward discretionary-oriented decision-making, providing for revisions of the land-use plans and subsequently diminishing its efficacy. A pending reform suggests eliminating district land-use plans and absorbing them into national and local plans. Concerning the debate on the future of the Israeli planning system, this research aims to assess the gap between certainty-oriented regulation and actual development, often occurring on a case-by-case basis. Our aim is to evaluate the actual performance of a district land-use plan, focusing particularly on aspects of land-use. Remote Sensing and GIS-based Plan Implementation Evaluation (PIE) analysis was used to test the impact of a comprehensive outline plan for Israel's Central District on the actual development of the built environment. The results show fundamental gaps between the original land-use assignments of the district plan and actual development. The limited effectiveness of regulatory land-use planning for complex, densely populated districts is then discussed in line with the certainty–flexibility dilemma in land-use planning and the structure of planning decision-making in Israel.     

Developing an integrated approach for the strategic monitoring of regional spatial plans

Monitoring is a challenging and fundamental issue within planning processes, yet there is little understanding as to whether plans achieved their goals in guaranteeing sustainable development on a territorial level. Follow-up of spatial planning is rather difficult due to insufficient methodologies, deficiencies in plans’ contents and resource limitations. The main goal of this research is to develop and test a conceptual framework to support the development of effective indicator based regional spatial plans’ (RSPs) monitoring systems. The conceptual framework includes indicators with distinct purposes and has the following features: (i) it establishes links between RSPs, their strategic environmental assessment and monitoring indicators; (ii) it incorporates the contribution of other existing monitoring systems in the regions; and (iii) it defines specific indicator selection criteria. In order to inform the development of the conceptual framework we: (i) review international practice of RSP monitoring; (ii) analyse the features of current Portuguese RSPs; (iii) test the conceptual framework using the RSP and the regional sustainability indicator system of the Algarve region (Portugal) as a case study. Two types of indicators were developed - output/implementation and results/effects - for improving the identification of cause-effect relationships between RSP implementation and associated territorial effects; although this is a continuing challenge, given the strategic nature of RSPs. The usefulness of the conceptual framework was demonstrated in the definition of monitoring indicators for the Algarve's RSP, as well as in the integration of an existing regional sustainability monitoring system.