中国国土空间用途管制的基础性问题思考

研究目的:明确国土空间用途管制的科学内涵,讨论新时代统一国土空间用途管制体系的基础性问题。研究方法:理论分析法和归纳演绎法。研究结果:(1)国土空间用途管制的对象是一个空间、属性与行为三位一体的复杂系统,管制实施中需协调好实体空间、功能空间与管理空间的关系。同时,异质性、动态性与尺度性等主要空间属性影响着管制实践的效率。(2)新时代国土空间用途管制完善了用途管制理念方法,但实践的滞后性引发了系统治理思维与分区分类管控的矛盾,空间尺度性与事权划分不匹配,管制手段中审批与许可关系不清等问题。(3)机构改革为自然资源统一管理带来机遇,但管制主体的职能界限模糊与"上下不对齐"的治理结构设置也带来了新的挑战。研究结论:国土空间用途管制在国家现代化治理体系中发挥着举足轻重的作用,内容体系逐渐完善,但基础理论认知和管制实施的矛盾仍旧突出,需要在今后的实践中不断改进。

Rethinking on the Basic Issues of Territorial and Spatial Use Control in China

The purpose of this paper is to clarify the connotation of territorial and spatial use control and explore the basic issues of its construction in the new era. The research methods include theoretical analysis and inductive deduction. The result shows that: 1)the object of territorial and spatial use control is a complex system i.e., the trinity of space-behavior-attribute. Land space can be divided into three categories: physical space, functional space and management space, which need to be coordinated in the implementation process. In addition, the spatial attributes of land space use regulation include heterogeneity, dynamics and scale, which determine the efficiency of governance. 2)The ideas of territorial and spatial use control have been improved in the new era, but the lag of the practice has led to a series of problems, including the contradictions between the systematic governance of life community and the management of zoning and classification, the contradictions between the multi-scale of land space and the unclear government powers in the current territorial spatial planning, and the fuzzy relationship of approval and permission. 3)The reconstruction of governance structure creates important opportunities for the unified management of natural resources, but the blurring of functional boundaries between spatial planning and land space use regulation as well as the mismatch of institutional settings will also bring new challenges. In conclusion, territorial and spatial use control plays an important role in the national modernized governance system. However, there are still some contradictions between the theoretical cognition and the implementation, remaining to be improved in the future practice.