国土空间规划法的立法逻辑与立法框架
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摘要
国土空间规划立法是规划行为科学展开、规划实施有序进行、规划管理规范有效的重要保障。本文在总结国内外空间规划法律法规体系的基础上,分析了国土空间规划法的立法逻辑,探讨了国土空间规划法的立法框架。在立法定位上,国土空间规划法属于公法(行政法)范畴,具有公益性、强制性和行政性特征;在立法意旨上,应体现国家意志,促进永续利用,完善治理体系,提升治理能力;在立法精神上,应注重规划行政与权力配置、空间正义与行政效率、规划引导与空间管制、以法治权与程序公正等要点。关于立法总体框架,可从规划体系、规划编制、规划审议、规划实施、规划监管等方面设计。根据立法时序与立法紧迫性,本文提出由易到难的进阶立法路径,以期为国土空间规划法的制定提供参考。
Spatial planning law is an important guarantee for the scientific development of the planning,orderly implementation of the plan,and its effective management.Based on the summary of the Chinese and international spatial planning laws and regulations,this study analyzed the legislative logic of the national spatial planning law and discussed the legislative framework of the national spatial planning law.In terms of legislative orientation,the spatial planning law belongs to the category of public law(administrative law) and has the characteristics of promoting public welfare,and being compulsory and administrative;in terms of the legislative intent,it embodies the will of the state,promotes sustainable use,improves governance,and optimizes the spatial pattern of use;in terms of the spirit of legislation,it should pay attention to plan administration and power allocation,space justice and administrative efficiency,planning guidance and space control,and the rule of law and procedural justice.The overall framework of legislation can be designed from the aspects of planning system,plan development,plan review,plan implementation,and plan supervision.According to the legislative sequence and the urgency of legislation,this article proposes a gradually advanced legislative path from simple to difficult,in order to provide references for the formulation of the national spatial planning law.
Spatial planning law is an important guarantee for the scientific development of the planning,orderly implementation of the plan,and its effective management.Based on the summary of the Chinese and international spatial planning laws and regulations,this study analyzed the legislative logic of the national spatial planning law and discussed the legislative framework of the national spatial planning law.In terms of legislative orientation,the spatial planning law belongs to the category of public law(administrative law) and has the characteristics of promoting public welfare,and being compulsory and administrative;in terms of the legislative intent,it embodies the will of the state,promotes sustainable use,improves governance,and optimizes the spatial pattern of use;in terms of the spirit of legislation,it should pay attention to plan administration and power allocation,space justice and administrative efficiency,planning guidance and space control,and the rule of law and procedural justice.The overall framework of legislation can be designed from the aspects of planning system,plan development,plan review,plan implementation,and plan supervision.According to the legislative sequence and the urgency of legislation,this article proposes a gradually advanced legislative path from simple to difficult,in order to provide references for the formulation of the national spatial planning law.
引文
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[11]严金明.规划体系引领国土空间永续利用[N].中国自然资源报,2019-05-30(003).[Yan J M.Planning System Leads Sustainable Utilization of Territorial Space[N].China Natural Resources Daily,2019-05-30(003).]
[12]Yan J M,Chen H,Xia F Z.Toward improved land elements for urban-rural integration:A cell concept of an urban-rural mixed community[J].Habitat International,2018,77(7):110-120.
[13]严金明,迪力沙提·亚库甫,夏方舟.基于协同发展的省域狭义国土开发强度内涵界定与阈值测度[J].农业工程学报,2019,35(4):255-264.[Yan J M,Dilishati·Y,Xia F Z.Definition and threshold measurement of narrow land development intensity in province scale based on coordinated development[J].Transactions of the Chinese Society of Agricultural Engineering,2019,35(4):255-264.]
[14]Yan J M,Shen Y,Xia F Z.Differentiated optimization of sustainable land use in metropolitan areas:A demarcation of functional units for land consolidation[J].Sustainability,2017,9(8):1356-1375.
[15]胡建淼.我国行政法上的强制执行:行为、定性及立法归属:兼论《行政强制法》或《行政程序法》与《行政诉讼法》对现行行政强制执行行为在调整范围上的划分[J].政法论坛,2003,21(4):41-50.[Hu J M.The coercive execution in the administrative law of China:Acts,determination and legislative attribution:And on the division of the acts of existing coercive execution with respect to the scope made by administrative coercion law or administrative proceed[J].Tribune of Political Science and Law,2003,21(4):41-50.]
[16]何明俊.关于空间宪政的理论[J].城市规划,2012,36(7):9-14.[He M J.On the theory of spatial constitutionalism[J].City Planning Review,2012,36(7):9-14.]
[17]Yan J M,Xia F Z,Bao H X H.Strategic planning framework for land consolidation in China:A top-level design based on SWOTanalysis[J].Habitat International,2015,48(8):46-54.
[18]周静,沈迟.荷兰空间规划体系的改革及启示[J].国际城市规划,2017,32(3):113-121.[Zhou J,Shen C.The reform of Dutch spatial planning system and its inspirations[J].Urban Planning International,2017,32(3):113-121.]
[19]严金明.土地规划立法的导向选择与法律框架构建[J].中国土地科学,2008,22(11):4-9.[Yan J M.Direction choice and legal framework construction of legislation on land use planning[J].China Land Science,2008,22(11):4-9.]20199
[20]黄征学,祁帆.完善国土空间用途管制制度研究[J].宏观经济研究,2018,(12):93-103.[Huang Z X,Qi F.Research on improving the control system for the use of land and space[J].Macroeconomics,2018,(12):93-103.]
[21]郭洁.土地用途管制模式的立法转变[J].法学研究,2013,35(2):60-83.[Guo J.Legislative change of land use control model[J].Chinese Journal of Law,2013,35(2):60-83.]
[22]迪尔克·埃勒斯,展鹏贺.德国行政程序法法典化的发展[J].行政法学研究,2016,(5):131-144.[Dierke A,Zhan P H.Development of codification of German administrative procedure law[J].Administrative Law Review,2016,(5):131-144.]
[23]黄学贤.中国行政程序法的理论与实践:专题研究述评[M].北京:中国政法大学出版社,2007.[Huang X X.The Theory and Practice of Administrative Procedure Law in China:A Review of Special Studies[M].Beijing:China University of Political Science and Law Press,2007.]
[24]郭昌盛.规划纲要的法律性质探析[J].上海政法学院学报(法治论丛),2018,(3):57-66.[Guo C S.Analysis on the legal nature of the program outline[J].Journal of Shanghai University of Political Science and Law(The Rule of Law Review),2018,(3):57-66.]
[25]刘健,周宜笑.从土地利用到资源管治,从地方管控到区域协调:法国空间规划体系的发展与演变[J].城乡规划,2018,(6):40-47.[Liu J,Zhou Y X.From land-use to territorial resources,from local control to regional coordination:The evolution of French spatial planning system[J].Urban and Rural Planning,2018,(6):40-47.]
[2]孙雯.国外发展规划立法例研究及对我国立法的启示[J].南京社会科学,2010,(7):91-97.[Sun W.Legal comparison on law of development plan[J].Nanjing Journal of Social Sciences,2010,(7):91-97.]
[3]顾朝林.论中国“多规”分立及其演化与融合问题[J].地理研究,2015,34(4):601-613.[Gu C L.On the separation of China’s spatial plans and their evolution and integration[J].Geographical Research,2015,34(4):601-613.]
[4]张光杰.中国法律概论[M].上海:复旦大学出版社,2005.[Zhang G J.Introduction to Chinese law[M].Shanghai:Fudan University Press,2005.]
[5]朱景文.中国特色社会主义法律体系:结构、特色和趋势[J].中国社会科学,2011,(3):20-39.[Zhu J W.The socialist legal system with Chinese characteristics:Its structure,features and trends[J].Social Sciences in China,2011,(3):20-39.]
[6]陈国栋.公法权利视角下的城市空间利益争端及其解决[J].行政法学研究,2018,(2):70-80.[Chen G D.Urban space dispute and solution from the perspective of public law[J].Administrative Law Review,2018,(2):70-80.]
[7]严金明,王晓莉,夏方舟.重塑自然资源管理新格局:目标定位、价值导向与战略选择[J].中国土地科学,2018,32(4):1-7.[Yan J M,Wang X L,Xia F Z.Remold new pattern of natural resource management:Target orientations,value guidelines and strategic choices[J].China Land Science,2018,32(4):1-7.]
[8]Kube H.Private property in natural resources and the public weal in German law-latent similarities to the public trust doctrine?[J].Natural Resources Journal,1997,37(3):857-879.
[9]李林林,靳相木,吴次芳.国土空间规划立法的逻辑路径与基本问题[J].中国土地科学,2019,33(1):1-8.[Li L L,Jin X M,Wu CF.Research on the logic of legislation on spatial planning in China and the relevant legal issues[J].China Land Science,2019,33(1):4191-8]
[10]严金明,陈昊,夏方舟.“多规合一”与空间规划:认知、导向与路径[J].中国土地科学,2017,31(1):21-27,87.[Yan J M,Chen H,Xia F Z.Cognition,direction and path of future spatial planning based on the background of multiple planning integration[J].China Land Science,2017,31(1):21-27,87.]
[11]严金明.规划体系引领国土空间永续利用[N].中国自然资源报,2019-05-30(003).[Yan J M.Planning System Leads Sustainable Utilization of Territorial Space[N].China Natural Resources Daily,2019-05-30(003).]
[12]Yan J M,Chen H,Xia F Z.Toward improved land elements for urban-rural integration:A cell concept of an urban-rural mixed community[J].Habitat International,2018,77(7):110-120.
[13]严金明,迪力沙提·亚库甫,夏方舟.基于协同发展的省域狭义国土开发强度内涵界定与阈值测度[J].农业工程学报,2019,35(4):255-264.[Yan J M,Dilishati·Y,Xia F Z.Definition and threshold measurement of narrow land development intensity in province scale based on coordinated development[J].Transactions of the Chinese Society of Agricultural Engineering,2019,35(4):255-264.]
[14]Yan J M,Shen Y,Xia F Z.Differentiated optimization of sustainable land use in metropolitan areas:A demarcation of functional units for land consolidation[J].Sustainability,2017,9(8):1356-1375.
[15]胡建淼.我国行政法上的强制执行:行为、定性及立法归属:兼论《行政强制法》或《行政程序法》与《行政诉讼法》对现行行政强制执行行为在调整范围上的划分[J].政法论坛,2003,21(4):41-50.[Hu J M.The coercive execution in the administrative law of China:Acts,determination and legislative attribution:And on the division of the acts of existing coercive execution with respect to the scope made by administrative coercion law or administrative proceed[J].Tribune of Political Science and Law,2003,21(4):41-50.]
[16]何明俊.关于空间宪政的理论[J].城市规划,2012,36(7):9-14.[He M J.On the theory of spatial constitutionalism[J].City Planning Review,2012,36(7):9-14.]
[17]Yan J M,Xia F Z,Bao H X H.Strategic planning framework for land consolidation in China:A top-level design based on SWOTanalysis[J].Habitat International,2015,48(8):46-54.
[18]周静,沈迟.荷兰空间规划体系的改革及启示[J].国际城市规划,2017,32(3):113-121.[Zhou J,Shen C.The reform of Dutch spatial planning system and its inspirations[J].Urban Planning International,2017,32(3):113-121.]
[19]严金明.土地规划立法的导向选择与法律框架构建[J].中国土地科学,2008,22(11):4-9.[Yan J M.Direction choice and legal framework construction of legislation on land use planning[J].China Land Science,2008,22(11):4-9.]20199
[20]黄征学,祁帆.完善国土空间用途管制制度研究[J].宏观经济研究,2018,(12):93-103.[Huang Z X,Qi F.Research on improving the control system for the use of land and space[J].Macroeconomics,2018,(12):93-103.]
[21]郭洁.土地用途管制模式的立法转变[J].法学研究,2013,35(2):60-83.[Guo J.Legislative change of land use control model[J].Chinese Journal of Law,2013,35(2):60-83.]
[22]迪尔克·埃勒斯,展鹏贺.德国行政程序法法典化的发展[J].行政法学研究,2016,(5):131-144.[Dierke A,Zhan P H.Development of codification of German administrative procedure law[J].Administrative Law Review,2016,(5):131-144.]
[23]黄学贤.中国行政程序法的理论与实践:专题研究述评[M].北京:中国政法大学出版社,2007.[Huang X X.The Theory and Practice of Administrative Procedure Law in China:A Review of Special Studies[M].Beijing:China University of Political Science and Law Press,2007.]
[24]郭昌盛.规划纲要的法律性质探析[J].上海政法学院学报(法治论丛),2018,(3):57-66.[Guo C S.Analysis on the legal nature of the program outline[J].Journal of Shanghai University of Political Science and Law(The Rule of Law Review),2018,(3):57-66.]
[25]刘健,周宜笑.从土地利用到资源管治,从地方管控到区域协调:法国空间规划体系的发展与演变[J].城乡规划,2018,(6):40-47.[Liu J,Zhou Y X.From land-use to territorial resources,from local control to regional coordination:The evolution of French spatial planning system[J].Urban and Rural Planning,2018,(6):40-47.]
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