国土空间规划学术笔谈

自2018年2月《中共中央关于深化党和国家机构改革的决定》及2019年5月《中共中央国务院关于建立国土空间规划体系并监督实施的若干意见》颁布以来，国土空间规划成为行业热点，并引起业界和学界广泛关注。为推动国土空间规划编制与实施工作以及规划学科与行业发展，本刊编辑部以“国土空间规划”为主题组织学术笔谈，邀请了六位学者与业界专家就国土空间规划的广泛议题进行探讨。首先，针对国土空间规划中理想与现实的矛盾与共存，刘玉亭教授认为不仅要在目标导向上做好多规合一转变、生态文明托底建设、治理体系与能力现代化兑现，还要在内容编制中实现关键科学问题的落实；同时，面对更加复合、复杂的编制要求与成果体现，如何在庞杂、多层级的规划体系中实现部门、职能和制度的高效整合是关键，要充分意识到国土空间规划是颇具差异化、具体化的长期动态博弈过程，与之匹配的学科与行业的发展都要突破传统模式，充分延伸其发展内涵。围绕新时期规划的发展定位问题，袁奇峰教授通过溯源城市与规划的发展历程，认为国土空间规划的出现是契合当下国情的调整，相比于关注投入产出最大化和减少损益，社会、经济、生态的协调发展更应成为新时代的主旋律；当今的规划要从辖区整体和长远发展的立场出发，成为兼顾经济发展、生态维护、政府失灵规避的决策过程和土地开发管制的行政制度。关于国土空间规划中问题导向、目标导向、结果导向相结合的转变，马向明总工程师认为问题诊断是城市规划的基础，而旧式的目标导向实际上则造成了实施层面成为短板的现实；国土空间规划所补充的结果导向原则，有利于推动部门间的协调以保证实施的连续性，但现实中依旧可能面临着目标与结果脱节、部门合作与政策整合困难的窘境。围绕行业与学科发展中变与不变的话题，邹兵总规划师指出，一方面要意识到新形势下规划范畴和内容、工作要求以及技术手段的方法等三个方面的调整，强调落实一张明确的蓝图、囊括更加广泛的编制内容和拓展学科知识覆盖的必要性；另一方面，也要继续坚守规划的本质，包括规划分析与发展的基础逻辑、高品质人居环境的发展追求以及空间方案的具体落实。针对国土空间规划背景下空间价值再塑，黄慧明总规划师提出了以存量带动流量、以整备重构空间、以效率配置资源、以民生提升品质的四点主张，而“分区+分类”的划定与更新思路则能有效地对资源进行评估，也有助于规划和实施环节的衔接。面对国土空间规划中实现“多规合一”的要求，罗彦总规划师围绕目标与理念、方法与内容、实施与管理三个方面进行讨论，认为“三调”是国土空间规划编制的基础，自然地理格局是空间图底上经济社会活动的关键限定；而统筹性的规划权责分配是实施的关键保障，规划要把公共设施、资源和空间效率一并囊括并视作未来城乡公共服务体系的核心。

An Academic Conversation on Territorial spatial planning

Since the promulgation of the "Decision of the Central Committee of the Communist Party of China on Deepening the Reform of Party and State Institutions" in February 2018 and the "Several Opinions of the Central Committee of the Communist Party of China and the State Council on Establishing a Territorial Spatial Planning System and Supervising Implementation" in May 2019, territorial spatial planning has become a hot topic in the industry and has attracted widespread attention from both industry and academia. In order to promote the preparation and implementation of territorial spatial planning as well as the development of planning disciplines and industries, the editorial department of the journal organized academic (written) talks with the theme of "territorial spatial planning" and invited six scholars and industry experts to discuss a wide range of topics in territorial spatial planning. First of all, in view of the contradiction and coexistence between ideals and reality in territorial spatial planning, Professor Liu Yuting holds the view that it is not only necessary to do a good job in the goal-oriented transformation of multiple regulations, the construction of ecological civilization, the realization of the governance system, and the modernization of capabilities; it is also important to realize that the implementation of key scientific issues in content compilation. At the same time, in the face of more complex and changeable preparation requirements and results, how to achieve efficient integration of departments, functions, and systems in a complex and multi-level planning system is key. It is necessary to fully realize that territorial spatial planning is a long-term dynamic process that is quite differentiated and specific. In addition, the development of matching disciplines and industries must break through the traditional model and fully extend its development connotation. Focusing on the development orientation of planning in the new era, and by tracing the development process of cities and planning, Professor Yuan Qifeng proposed that the emergence of territorial spatial planning is an adjustment in line with the current national conditions. Rather than focusing on maximizing input and output and reducing profits and losses, the coordinated development of society, economy, and ecology should become the main theme of the new era. Current planning should proceed from the standpoint of the overall and long-term development of a jurisdiction and become an administrative system that takes into account economic development, ecological maintenance as well as government failure-avoidance and decision-making processes and land development controls. Regarding the transformation of the combination of problem orientation, goal orientation and result orientation in territorial spatial planning, Chief Engineer Ma Xiangming believes that problem diagnosis is the basis of urban planning, and the old-style goal orientation actually causes the shortcoming at the implementation level. The result-oriented principle supplemented by territorial spatial planning is conducive to promoting inter-departmental coordination to ensure the continuity of implementation. However, in reality, there may still be the dilemma of disjointness between goals and results as well as difficulties in departmental cooperation and policy integration. Focusing on the changing and unchanging topics in the development of industries and disciplines, Chief Planner Zou Bing pointed out that, on the one hand, we must be aware of the adjustments in three aspects of planning scope and content, work requirements, and technical methods under the new situation, emphasizes the need to implement a clear blueprint, include more extensive compilation, and expand subject knowledge; on the other hand, we must continue to adhere to the essence of planning, including the basic logic of planning analysis and development, the pursuit of high-quality human settlements, and the specific implementation of space plans. Aiming at the reshaping of space value in the context of territorial spatial planning, Chief Planner Huang Huiming put forward four propositions of driving traffic with stock, reorganizing space, allocating resources with efficiency, and improving quality with people's livelihood. The delineation and update ideas of "zone + classification" can effectively evaluate resources and help link planning and implementation. Faced with the requirement of "integrating multiple plans into one" in territorial spatial planning, Chief Planner Luo Yan discussed three aspects: goals and concepts, methods and content, implementation and management. He believes that the "three adjustments" are the basis for the compilation of territorial spatial planning, and that the physical geographical pattern is the key limitation of economic and social activities on the bottom of the spatial map. The overall planning of the distribution of powers and responsibilities is key to implementation. Planning should include public facilities, resources, and space efficiency, which should be regarded as the core of the future urban and rural public service system.