规划逻辑转变下的都市圈空间规划方法探讨
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摘要
应对国家空间治理现代化和国土空间规划体系重构的要求,我国都市圈空间规划面临生态文明导向的政治逻辑转变和资源环境约束下的发展逻辑转变。基于规划逻辑转变,明确了都市圈空间规划是国土空间规划体系中以聚焦空间协同发展为核心的专项规划,从对应需求目标引领和因地制宜问题协调两个视角,提出了都市圈空间规划编制的技术框架。结合当前都市圈空间规划实践和空间规划改革的要求,研究认为规划编制重点应聚焦以传导和协同为导向的指标体系制定、流动性的要素资源优化配置和调控、协同管控和利用的空间格局谋划、跨界组团空间合作等。针对都市圈缺乏统一的实施主体等问题,提出了不同类型都市圈空间规划编制组织方式、规划实施的区域合作机制、都市圈管理信息平台的共建,以及都市圈空间规划实施情况的动态监测等。通过对都市圈空间规划编制理念、技术框架、重点内容和实施组织的系统探讨,将为我国都市圈空间规划的编制和都市圈空间治理的现代化提供理论基础和方法指导。
At present, China is promoting the modernization of territorial space governance,and the territorial space planning system is also being reconstructed. As a response, the spatial planning of metropolitan area is facing the transformation of political logic oriented by ecological civilization and development logic constrained by resources and environment. Based on the transformation of planning logics, the paper clarifies that the spatial planning of metropolitan area is a special planning with the focus on coordinated development of space as the core in the system of territorial space planning, and puts forward the technical framework of the spatial planning of metropolitan area from the two perspectives, namely, corresponding demand objectives and coordination of local conditions. Based on the above new requirements,the paper considers that the planning should focus on the formulation of conduction and coordination-oriented index system, the optimal allocation and regulation of liquidity factor resources, the planning of spatial pattern of coordinated control and utilization, and the spatial cooperation of cross-border groups. In view of the lack of a unified implementation subject,this paper puts forward the organizational mode of spatial planning compilation in different types of metropolitan areas. Regional cooperation mechanism, dynamic monitoring of the plan,and co-construction of information platform for management, are also proposed. Through the systematic discussion on the spatial planning of metropolitan area, this paper will provide theoretical basis and methodological guidance for the compilation of the forthcoming spatial planning and the modernization of the spatial governance of metropolitan area.
At present, China is promoting the modernization of territorial space governance,and the territorial space planning system is also being reconstructed. As a response, the spatial planning of metropolitan area is facing the transformation of political logic oriented by ecological civilization and development logic constrained by resources and environment. Based on the transformation of planning logics, the paper clarifies that the spatial planning of metropolitan area is a special planning with the focus on coordinated development of space as the core in the system of territorial space planning, and puts forward the technical framework of the spatial planning of metropolitan area from the two perspectives, namely, corresponding demand objectives and coordination of local conditions. Based on the above new requirements,the paper considers that the planning should focus on the formulation of conduction and coordination-oriented index system, the optimal allocation and regulation of liquidity factor resources, the planning of spatial pattern of coordinated control and utilization, and the spatial cooperation of cross-border groups. In view of the lack of a unified implementation subject,this paper puts forward the organizational mode of spatial planning compilation in different types of metropolitan areas. Regional cooperation mechanism, dynamic monitoring of the plan,and co-construction of information platform for management, are also proposed. Through the systematic discussion on the spatial planning of metropolitan area, this paper will provide theoretical basis and methodological guidance for the compilation of the forthcoming spatial planning and the modernization of the spatial governance of metropolitan area.
引文
[1]张晓玲,赵雲泰,贾克敬.我国国土空间规划的历程与思考.中国土地, 2017,(1):14-18.[ZHANG X L, ZHAO Y T,JIA K J. The history and consideration of China's territorial spatial planning. China Land, 2017,(1):14-18.]
[2]郝庆.对机构改革背景下空间规划体系构建的思考.地理研究, 2018, 37(10):1938-1946.[HAO Q. The construction of spatial planning system under the background of institutional reform. Geographical Research, 2018, 37(10):1938-1946.]
[3]席广亮,甄峰,沈丽珍,等.南京市居民流动性评价及流空间特征研究.地理科学, 2013, 33(9):1051-1057.[XI G L,ZHEN F, SHEN L Z, et al. The evaluation of resident fluidity and the spatial characteristics of flow in Nanjing. Scientia Geographica Sinica, 2013, 33(9):1051-1057.]
[4]董晓峰,史育龙,张志强,等.都市圈理论发展研究.地球科学进展, 2005, 20(10):1067-1074.[DONG X F, SHI Y L,ZHANG Z Q, et al. A study on the development of the metropolitan region. Advances in Earth Science, 2005, 20(10):1067-1074.]
[5]薛俊菲,顾朝林,孙加凤.都市圈空间成长的过程及其动力因素.城市规划, 2006, 30(3):53-56.[XUE J F, GU C L,SUN J F. Process and driving factors of spatial growth in metropolitan areas. City Planning Review, 2006, 30(3):53-56.]
[6]张纯,贺灿飞.大都市圈与空间规划:国际经验.国际城市规划, 2010, 25(4):85-91.[ZHANG C, HE C F. Meg a-region and spatial planning:A global perspective. Urban Planning International, 2010, 25(4):85-91.]
[7]高洁,刘畅.伦理与秩序:空间规划改革的价值导向思考.城市发展研究, 2018, 25(2):1-7.[GAO J, LIU C. Ethics and order:Value-oriented thinking of spatial planning reform. Urban Development Studies 2018, 25(2):1-7.]
[8]林坚,吴宇翔,吴佳雨,等.论空间规划体系的构建:兼析空间规划、国土空间用途管制与自然资源监管的关系.城市规划, 2018, 42(5):9-17.[LIN J, WU Y X, WU J Y, et al. Construction of the spatial planning system:With discussions on the relationship between spatial planning, territorial spatial regulation, and natural resources supervision. City Planning Review, 2018, 42(5):9-17.]
[9]黄颖,周素红,钟谦.区域治理视角下《珠江三角洲地区改革发展规划纲要》的实施机制及启示.国际城市规划,2015, 30(4):85-91.[HUANG Y, ZHOU S H, ZHONG Q. A study of the"outlines for reform and development planning of Pearl River Delta region"from the perspective of regional governance:Implementation mechanism and implication.Urban Planning International, 2015, 30(4):85-91.]
[10]王智勇,杨体星,刘合林,等.城市密集区空间协同发展策略研究:以武汉城市圈为例.规划师, 2018,(4):20-26.[WANG Z Y, YANG T X, LIU H L, et al. Coordinate spatial development strategy of densely urbanized area:Wuhan Metropolitan Circle. Planners, 2018,(4):20-26.]
[11]段佩利,刘曙光,尹鹏,等.中国沿海城市开发强度与资源环境承载力时空耦合协调关系.经济地理, 2018, 35(5):60-67.[DUAN P L, LIU S G, YIN P, et al. Spatial-temporal coupling coordination relationship between development strength and resource environmental bearing capacity of coastal cities in China. Economic Geography, 2018, 35(5):60-67.]
[12] MAN-HYUNG LEE, CHAN-HO KIM,高毅存.韩国城市与区域规划体系发展过程与特点.北京规划建设, 2005,(5):62-64.[MAN-HYUNG LEE, CHAN-HO KIM, GAO Y C. The development process and characteristics of South Korea's urban and regional planning system. Beijing City Planning&Construction Review, 2005,(5):62-64.]
[13]世界银行. 2009年世界发展报告:重塑世界经济地理.北京:清华大学出版社, 2009:47-124.[The World Bank.World Development Report 2009:Reshaping Economic Geography. Beijing:Tsinghua University Press, 2009:47-124.]
[14]施卫良.京津冀协同发展背景下交界地区规划管控与引导.杭州:中国城市规划年会, 2018.[SHI W L. Planning control and guidance of border areas under the background of coordinated development for the Beijing-Tianjin-Hebei.Hangzhou:Annual National Planning Conference, 2018.]
[15]江苏省城市规划设计研究院.镇江市宝下高地区空间发展规划.镇江:镇江市自然资源和规划局, 2018.[Jiangsu Institute of Urban Planning and Design. Spatial development planning of Baohua-Xiashu-Gaozi area in Zhenjiang. Zhenjiang:Zhenjiang Natural Resources and Planning Bureau, 2018.]
[16]余亮亮,蔡银莺.国土空间规划管制与区域经济协调发展研究:一个分析框架.自然资源学报, 2017, 32(8):1445-1456.[YU L L, CAI Y Y. Research on land spatial planning regulation and regional economic coordination development:An analytical framework. Journal of Natural Resources, 2017, 32(8):1445-1456.]
[17]靳相木,沈子龙.国外土地发展权转让理论研究进展.经济地理, 2010, 30(10):1706-1711.[JIN X M, SHEN Z L. Research progress of foreign land development right transfer theory. Economic Geography, 2010, 30(10):1706-1711.]
[18]杨欣,蔡银莺,张孝宇,等.基于生态账户的农田生态补偿空间转移研究:以武汉城市圈48个县（市、区）为例.自然资源学报, 2015, 30(2):197-208.[YANG X, CAI Y Y, ZHANG X Y, et al. Measurement of farmland eco-compensation and its spatial transfer in Wuhan metropolitan area based on ecological account. Journal of Natural Resources, 2015, 30(2):197-208.]
[19]徐海贤.省级都市圈高位协调机构的建立与实施机制.城市规划, 2007, 31(11):27-32.[XU H X. Establishment and implementation mechanism of coordinating institution for provincial metropolitan coordinating region. City Planning Review, 2007, 31(11):27-32.]
[20]官卫华,叶斌,周一鸣,等.国家战略实施背景下界都市圈空间协同规划创新:以南京都市圈城乡规划协同工作为例.城市规划学刊, 2015, 39(5):57-67.[GUAN W H, YE B, ZHOU Y M, et al. Innovation on spatial coordinating ran of metropolitan circle in the implement of national strategies:Taking urban and rural planning-coordination of Nanjing metropolitan circle as an example. Economic Geography, 2015, 39(5):57-67.]
[21]陈小卉,钟睿.跨界协调规划:区域治理的新探索:基于江苏的实证.城市规划, 2017, 41(9):24-29.[CHEN X H,ZHONG R. Cross-boundary coordination region plan:A new exploration on region governance:A case study of Jiangsu province. City Planning Review, 2018, 35(5):60-67.]
[2]郝庆.对机构改革背景下空间规划体系构建的思考.地理研究, 2018, 37(10):1938-1946.[HAO Q. The construction of spatial planning system under the background of institutional reform. Geographical Research, 2018, 37(10):1938-1946.]
[3]席广亮,甄峰,沈丽珍,等.南京市居民流动性评价及流空间特征研究.地理科学, 2013, 33(9):1051-1057.[XI G L,ZHEN F, SHEN L Z, et al. The evaluation of resident fluidity and the spatial characteristics of flow in Nanjing. Scientia Geographica Sinica, 2013, 33(9):1051-1057.]
[4]董晓峰,史育龙,张志强,等.都市圈理论发展研究.地球科学进展, 2005, 20(10):1067-1074.[DONG X F, SHI Y L,ZHANG Z Q, et al. A study on the development of the metropolitan region. Advances in Earth Science, 2005, 20(10):1067-1074.]
[5]薛俊菲,顾朝林,孙加凤.都市圈空间成长的过程及其动力因素.城市规划, 2006, 30(3):53-56.[XUE J F, GU C L,SUN J F. Process and driving factors of spatial growth in metropolitan areas. City Planning Review, 2006, 30(3):53-56.]
[6]张纯,贺灿飞.大都市圈与空间规划:国际经验.国际城市规划, 2010, 25(4):85-91.[ZHANG C, HE C F. Meg a-region and spatial planning:A global perspective. Urban Planning International, 2010, 25(4):85-91.]
[7]高洁,刘畅.伦理与秩序:空间规划改革的价值导向思考.城市发展研究, 2018, 25(2):1-7.[GAO J, LIU C. Ethics and order:Value-oriented thinking of spatial planning reform. Urban Development Studies 2018, 25(2):1-7.]
[8]林坚,吴宇翔,吴佳雨,等.论空间规划体系的构建:兼析空间规划、国土空间用途管制与自然资源监管的关系.城市规划, 2018, 42(5):9-17.[LIN J, WU Y X, WU J Y, et al. Construction of the spatial planning system:With discussions on the relationship between spatial planning, territorial spatial regulation, and natural resources supervision. City Planning Review, 2018, 42(5):9-17.]
[9]黄颖,周素红,钟谦.区域治理视角下《珠江三角洲地区改革发展规划纲要》的实施机制及启示.国际城市规划,2015, 30(4):85-91.[HUANG Y, ZHOU S H, ZHONG Q. A study of the"outlines for reform and development planning of Pearl River Delta region"from the perspective of regional governance:Implementation mechanism and implication.Urban Planning International, 2015, 30(4):85-91.]
[10]王智勇,杨体星,刘合林,等.城市密集区空间协同发展策略研究:以武汉城市圈为例.规划师, 2018,(4):20-26.[WANG Z Y, YANG T X, LIU H L, et al. Coordinate spatial development strategy of densely urbanized area:Wuhan Metropolitan Circle. Planners, 2018,(4):20-26.]
[11]段佩利,刘曙光,尹鹏,等.中国沿海城市开发强度与资源环境承载力时空耦合协调关系.经济地理, 2018, 35(5):60-67.[DUAN P L, LIU S G, YIN P, et al. Spatial-temporal coupling coordination relationship between development strength and resource environmental bearing capacity of coastal cities in China. Economic Geography, 2018, 35(5):60-67.]
[12] MAN-HYUNG LEE, CHAN-HO KIM,高毅存.韩国城市与区域规划体系发展过程与特点.北京规划建设, 2005,(5):62-64.[MAN-HYUNG LEE, CHAN-HO KIM, GAO Y C. The development process and characteristics of South Korea's urban and regional planning system. Beijing City Planning&Construction Review, 2005,(5):62-64.]
[13]世界银行. 2009年世界发展报告:重塑世界经济地理.北京:清华大学出版社, 2009:47-124.[The World Bank.World Development Report 2009:Reshaping Economic Geography. Beijing:Tsinghua University Press, 2009:47-124.]
[14]施卫良.京津冀协同发展背景下交界地区规划管控与引导.杭州:中国城市规划年会, 2018.[SHI W L. Planning control and guidance of border areas under the background of coordinated development for the Beijing-Tianjin-Hebei.Hangzhou:Annual National Planning Conference, 2018.]
[15]江苏省城市规划设计研究院.镇江市宝下高地区空间发展规划.镇江:镇江市自然资源和规划局, 2018.[Jiangsu Institute of Urban Planning and Design. Spatial development planning of Baohua-Xiashu-Gaozi area in Zhenjiang. Zhenjiang:Zhenjiang Natural Resources and Planning Bureau, 2018.]
[16]余亮亮,蔡银莺.国土空间规划管制与区域经济协调发展研究:一个分析框架.自然资源学报, 2017, 32(8):1445-1456.[YU L L, CAI Y Y. Research on land spatial planning regulation and regional economic coordination development:An analytical framework. Journal of Natural Resources, 2017, 32(8):1445-1456.]
[17]靳相木,沈子龙.国外土地发展权转让理论研究进展.经济地理, 2010, 30(10):1706-1711.[JIN X M, SHEN Z L. Research progress of foreign land development right transfer theory. Economic Geography, 2010, 30(10):1706-1711.]
[18]杨欣,蔡银莺,张孝宇,等.基于生态账户的农田生态补偿空间转移研究:以武汉城市圈48个县（市、区）为例.自然资源学报, 2015, 30(2):197-208.[YANG X, CAI Y Y, ZHANG X Y, et al. Measurement of farmland eco-compensation and its spatial transfer in Wuhan metropolitan area based on ecological account. Journal of Natural Resources, 2015, 30(2):197-208.]
[19]徐海贤.省级都市圈高位协调机构的建立与实施机制.城市规划, 2007, 31(11):27-32.[XU H X. Establishment and implementation mechanism of coordinating institution for provincial metropolitan coordinating region. City Planning Review, 2007, 31(11):27-32.]
[20]官卫华,叶斌,周一鸣,等.国家战略实施背景下界都市圈空间协同规划创新:以南京都市圈城乡规划协同工作为例.城市规划学刊, 2015, 39(5):57-67.[GUAN W H, YE B, ZHOU Y M, et al. Innovation on spatial coordinating ran of metropolitan circle in the implement of national strategies:Taking urban and rural planning-coordination of Nanjing metropolitan circle as an example. Economic Geography, 2015, 39(5):57-67.]
[21]陈小卉,钟睿.跨界协调规划:区域治理的新探索:基于江苏的实证.城市规划, 2017, 41(9):24-29.[CHEN X H,ZHONG R. Cross-boundary coordination region plan:A new exploration on region governance:A case study of Jiangsu province. City Planning Review, 2018, 35(5):60-67.]
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