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SpatialPlanningSystemofNationalTerritoryinJapan,ChinaandKorea日本、中華人民共和國和韓國國土空間規(guī)劃體系KyungrockYE,Jun-huaZHANG,TakeshiKINOSHITA,Xing-yanWANGAbstract:ThisstudyconductedthenationalterritoryplanningsystemofJapan,ChinaandKorea,onapremisetodiscusspossibilityofintegratedspatialplanningofEasternAsia.Thepurposeofthisstudyistoarrangemajorspatialplansofthreecountriesaccordingtoclassificationofurbanandnon-urbanarea,andtoclarifyingroleofeachspatialplan.。文摘:本研究是在進行中華人民共和國、日本、韓國國土規(guī)劃體系前提下,探討整個亞洲東部綜合空間規(guī)劃也許性。本研究目是依照都市區(qū)域和非都市區(qū)域分類,明確大空間籌劃下三個國家在規(guī)劃中所扮演角色。Asaresult,Korea,thesmallestcountryamongthreecountries,hasonesystemonlanduse,developmentandconservation,consideringwholenationalterritorytobeonecityplanningarea,andaroleandrelationofeachspatialplaniscomparativelyclear.Ontheotherhand,China,thelargestcountryamongthreecountries,althougharoleandrelationofeachspatialplanareclearinurbanarea,ageneralrecognitionfornecessityofnon-urbanareaplanningisweak.IncaseofJapan,thecharacteristicsthatthespatialplanningsystemisconsistedonthedivisionintourbanareaandnon-urbanarea,isverysimilartoChina,andthereishardlyrelationbetweenthesetwokindsofspatialplanning.最后,作為最小國家韓國,已擁有一種針對土地使用、發(fā)展與保護體系,它把整個國家領(lǐng)土是一種都市規(guī)劃區(qū)考慮,每個空間規(guī)劃角色和關(guān)系較為清晰。另一方面,作為最大國家中華人民共和國,盡管市區(qū)空間規(guī)劃是很明確,但人們對非都市空間規(guī)劃注重限度都非常薄弱。在日本,空間規(guī)劃系統(tǒng)對都市區(qū)域和非都市地區(qū)劃分原則跟中華人民共和國是非常相似,這兩種類型空間規(guī)劃幾乎沒有必然關(guān)系。Keywords:Nationalterritoryplan;Japan;China;Korea;Spatialplanning;EasternAsiaCommunity.核心詞:國土規(guī)劃;日本、中華人民共和國、韓國、空間規(guī)劃、東亞共同體。RecentlyitisfrequentlydiscussedontheEasternAsiaCommunity.Thisisstillmainlyfocusedontheeconomy,butinenvironmentalaspectwealsohavesomecommonseriousproblems,e.g.sustainabledevelopment,bio-diversity,outstandinglandscape/natureconservation,balanceddevelopmentoftownandcountry,culturalassetsconservation/utilizationandseveralenvironmentalproblems.Inordertosettlethesesubjects,itisimportantnotonlytochallengebyeachcountrybutalsotoprepareacommonframeworkforcomprehensivespatialplanningcoveringwholeeasternAsia..近來東亞共同體經(jīng)常被討論,重要關(guān)注依然是經(jīng)濟問題,但在環(huán)保方面咱們也有某些常用嚴重問題需要解決,如可持續(xù)發(fā)展、生物多樣性、先進景觀、自然保護、城鄉(xiāng)協(xié)調(diào)發(fā)展、文化遺產(chǎn)保護、環(huán)境問題等。解決這些問題,重要不但是對每個國家挑戰(zhàn),而是需要準備一種常用全面覆蓋整個亞洲空間規(guī)劃框架。ThisstudywasdonetoclarifythesimilaritiesanddifferencesofnationalterritoryplanningsystemofJapan,ChinaandKoreaasafirststeptodiscussonthesubjectsandpossibilitiesofcomprehensiveEasternAsianspatialplanning.UntilnowthenationalterritoryplanningsystemofJapanandKoreahavealreadybeenstudied,butthecomparativestudybetweenthreecountriesincludingChinafromtheviewpointofspatialplanninghasneverseenbefore.Weusedmainlyrelatedliteraturesonplanningsystemandgovernment'sofficialwebsitesofeachcountrytoclarifythepurposesofthisstudy.Andweclassifiedeachcountry'smajorspatialplansintofourcategories,national,regional,urbanareaandnon-urbanarea,anddiscussedontheverticalandhorizontalrelationbetweenthem.本研究之目:第一步是明確日本、中華人民共和國和韓國國土規(guī)劃體系異同,討論綜合東亞空間規(guī)劃課題和也許性。迄今為止,日本和韓國國土規(guī)劃體系已經(jīng)進行了比較研究階段,但從空間規(guī)劃角度對三個國家比較研究尚未進行。咱們重要在每一種國家規(guī)劃系統(tǒng)有關(guān)文獻、政府官方網(wǎng)站上闡明了本篇研究目。咱們按照整個大空間規(guī)劃把每個國家分為國家、地區(qū)、都市區(qū)域和非都市區(qū)域四類,討論垂直和水平關(guān)系。1NationalTerritoryPlanningSystemofJapanTheComprehensiveNationalDevelopmentAct(1950),LandUsePlanningAct(1974)andCityPlanningAct(1968)supportJapanesemajorspatialplanning(Table1).TheseareallunderthejurisdictionoftheMinistryofLand,infrastructureandTransport.TheCNDPprovidestong-rangevisionsonnation-widelanduse,developmentandconservation,socialoverheadcapital,andatrafficpolicy.Accordingthisplan,theCPDPandMLParetobeprepared.ThePlansprovidedbyLandUsePlanningActincludesNLPandPLPontheperspectiveofeffectivenationallanduseandLUMPthatclassifiedprefecturallanduseintofiveareas(town,agriculture,forest,naturalparkandnaturalconservationarea).Fig.1showsthattherearemaintwospatialplansbytwoactsatnationalandregionallevel,buttherelationandarolesharingbetweentheactsandplans.Representativeplansofurbanareaandnon-urbanareaaretheMLPbyLandUsePlanningActandtheCPbyCityPlanningAct,buttherelationbetweenthetwoisnotclearandactuallytheonlyCPplaysakeyroletocontrollanduse.itisclearthattheJapanesenationalterritoryplanningisdividedintoNLPandCPandtheroleofregionalplanningisrelativelysmall.Thereforetheareathatiscloselycoveredbymainthreeactsisonly'cityplanningarea',theothernon-urbanareaisdependedonotherrelatedacts(Fig.1).TheareaclassificationbyLUMPsupportscompetentministriesandacts,andseparateplansareappliedtoeacharea.Inotherwords,onemaysaythattheJapanesenationalterritoryplanningstressestheurbanareas'plansandinnon-urbanareasthereisnocomprehensiveplanthatunifiestherelatedplans(Fig.1)andaframe/roleofregionalplanningisrelativelyweak.一、日本國土規(guī)劃系統(tǒng)綜合國家發(fā)展行動(1950年)、土地運用總體規(guī)劃(1974年)和都市規(guī)劃條例(1968)都支持日本重要空間規(guī)劃(表1)。這些都是其管轄下土地、基本設(shè)施、運送。CNDP提供在全國土地運用、保護和發(fā)展、社會資本,交通政策概念規(guī)劃。依照該規(guī)劃,CPDP和MLP已經(jīng)開始準備。這個能提供土地運用總體規(guī)劃籌劃涉及對國家土地運用分類PLP和NLP和對縣級土地運用提成五類(鎮(zhèn)、農(nóng)、林、天然公園和自然保護區(qū))LUMP。圖1顯示了兩個在國家和地區(qū)水平上重要空間籌劃行為,但這種關(guān)系和角色被行為和籌劃分享,市區(qū)和非市區(qū)域代表籌劃是由土地運用總體規(guī)劃MLP和都市規(guī)劃CP,但兩者之間關(guān)系尚不清晰,其實只有CP扮演著核心角色來控制土地使用。很明顯,日本國土規(guī)劃分為NLP和CP,而區(qū)域規(guī)劃影響是較小。因而,市區(qū)重要由三個行為控制,而其她非市區(qū)是依托其他有關(guān)行為。LUMP對這個地區(qū)別類支持主管部門和行為,并單獨應(yīng)用于各區(qū)域籌劃中。換句話說,日本國土規(guī)劃強調(diào)都市地區(qū)籌劃和非地區(qū)并沒有全面結(jié)合有關(guān)籌劃,區(qū)域規(guī)劃還相對薄弱。2.NationalTerritoryPlanningSystemofChinaTheLandManagementAct(1986),CityPlanningAct(1989),andtheVillageandCountryPlanningRegulations(1993)supportChinesemajorspatialplanning.ThecompetentministriesareclassifiedintotheMinistryofLandandResources,theMinistryofConstruction,andtheNationalDevelopmentandReformCommission.UndertheLandManagementActtheadministrativeauthorities(upperlevelofprefecture)preparetheCNLUPtoclassifythefuturelanduseandcontrol,toregulatenetvolumeofconstructionsite,andtoprotectfarmlands.UndertheCityPlanningAct,theNTCPprovidesalong-rangehierarchyofcities'populationsizeandcityplanningareainthewholenationalterritoryfromthecomprehensivestrategicviewpointofeconomicalandsocialdevelopmentinharmonywithresourcesandecologicalenvironment.TheCPisconstitutedwithComP(indicatesthefuturedevelopmentdirectionandlanduseofadministrativeunitsupperlevelofprefecture),DP(whichispreparedinthedistrictarea),andDeP(providesotherdetailitems).TheVCPprovidesvillageandcountry'sdevelopmentdirectionandplacementplanofproductionandlifefacilitiessuchastransport,disasterprevention,commerceandgreening,etc.,enhancinglocalidentity.TheRPisawideareaplanningofaneconomiccommunitycoveringpluraladministrativeunitstoharmonizeeconomicaldevelopmentandresourcesmanagementlikeas'TheYangtzeRiverDeltaAreaPlan'.Thisplanhaspossibilitytoplayaroleofwidearea(theoreticallywholenationalarea)adjustmentbeyondawallbetweenadministrativeareastargetingaplanofcitysize,transportnetworking,utilization,developmentandconservationofresources,etc.,butitissaidthepowerandmanagementbaseasaspatialplanarerelativelyweak。BythewayintheletterofeachactitisprescribedthattheVCPhastoadjustitselftoCPandCLUP,andtheCFhastoadjustitselftotheCLUPandRP,butactuallyfalsesettinghasoccurredfrequentlybecauseofadifficultiesofplanningadjustmentbetweendifferentministriesandunclearshareoftherolebetweentheseplans.Ontheotherhand,theadministrativeauthoritiesupperlevelofprefecturehasaresponsibilitytoprepareeachplan,thusitissaidthatthereismuchrepetitionofaplan,however,thealmostwholenationalterritory(bothurbanareasandnon-urbanareas)iscloselycoveredbytheseCPandVCP(Table1).Asaresult,inthenationalterritory.planningtherearesimilarplanningconceptsasmuchasthenumberofcompetentministries,possibilitytobecomearepetitionplanishigh.Thisplanningsystemmakecoveringbothtownandcountryareahasalreadybeenestablished,buteachplanistendtobeboundtoanadministrativeauthority,thereforeageneralideasuchasRPisneedtospread,thatcanadjustthemattersinwideareacoveringsomeprovincesandinmediumareacoveringsomecitiesandprefectures.二、中華人民共和國國土規(guī)劃體系土地管理行為(1986)、都市規(guī)劃條例(1989)、村莊和國家規(guī)劃法規(guī)(1993)支持中華人民共和國重要空間規(guī)劃。主管部門分為國土資源部、建設(shè)部、國家發(fā)展和改革委員會。依照土地管理法行政當(dāng)局(縣上級)擬訂CNLUP分類將來土地運用和控制、規(guī)范施工現(xiàn)場凈體積、保護農(nóng)田。依照都市規(guī)劃法,NTCP提供了都市遠期層次人口規(guī)模,從整個都市綜合經(jīng)濟、社會與資源和生態(tài)環(huán)境協(xié)調(diào)發(fā)展戰(zhàn)略高度規(guī)劃國土面積。CP是由ComP(指出此后發(fā)展方向和土地使用單位行政上級縣),DP(這是該區(qū)面積編寫),和DEP(提供其她細節(jié)項目)。VCP提供鄉(xiāng)村和國家發(fā)展方向和安頓籌劃生產(chǎn)和生活設(shè)施,如交通,災(zāi)害防止,商業(yè)和綠化等,加強地方認同。RP是一種涵蓋了經(jīng)濟社會廣泛多元行政區(qū)劃區(qū)規(guī)劃,協(xié)調(diào)經(jīng)濟發(fā)展和資源管理,就好像'長江三角洲地區(qū)籌劃'。這個籌劃也許性,以發(fā)揮廣域(理論上整個國民經(jīng)濟領(lǐng)域中作用)超過目的之間都市規(guī)模,交通網(wǎng)絡(luò),運用、開發(fā)和資源保護等規(guī)劃調(diào)節(jié)行政區(qū)域,但作為一種空間籌劃,力度和管理基本相對薄弱。此外,每一種字母方式行為是受到規(guī)定,VCP必要調(diào)節(jié)自己CP和CLUP,并且CF要調(diào)節(jié)自己CLUP和RP,但事實上錯誤經(jīng)常發(fā)生,由于經(jīng)常謀劃困難調(diào)節(jié)各部委之間和它們之間共享籌劃作用尚不清晰。另一方面,行政當(dāng)局縣上層有責(zé)任準備每個籌劃,因而有人說,有諸多重復(fù)籌劃,但是,幾乎整個國家領(lǐng)土(涉及都市地區(qū)和非都市地區(qū))密切受這些CP和VCP影響(表1)。因而,在國家國土規(guī)劃上有類似規(guī)劃概念跟主管部門數(shù)目同樣多,從而重復(fù)籌劃也變得非常高。這個系統(tǒng)使規(guī)劃覆蓋都市和農(nóng)村地區(qū)都已經(jīng)建立,但每個籌劃往往被綁定到一種行政機關(guān),因而,一種總體思路如RP是發(fā)揚,可以調(diào)節(jié)涉及某些省在內(nèi)大區(qū)域,和涉及一種區(qū)域及市區(qū)域。3NationalTerritoryPlanningSystemofKoreaTheKoreansystemissimplerthantheJapaneseandtheChineseone,reflectingsmallnationalterritory.MajorspatialplanningrelatedactsaretheFrameworkActofNationalTerritory()andtheActonPlanningandUseofNationalTerritory(),andthecompetentauthorityistheMinistryofConstructionandTransportonly.Plansprovidedbythesetwoactscompletelyshareinresponsibility.TheCNTPprovidesfundamentalandlong-rangepoliciesonthenation/region/municipality'sdevelopmentdirectionandfutureimage,utilizationandmanagementoflandresources,disasterpreventionandenvironmentalconservationandimprovement,etc.TheRP(providedbytheActonPlanningandUseofNationalTerritory),whichiscomprehensiveplancoveringwidearea(thatissetifnecessary)toextendtoseveralcitiesandcounties,aimstoshareinresponsibilityofurbanfunctionsatwidescale,openspaceplanning,environmentalplanning,andlandscapeplanning.TheCP(coveringurbanareas)andtheCoP(coveringnon-urbanofareas)arethelong-rangecomprehensivespatialplanning,andbothplansconsistofamasterplanandamanagementplan.TheCMPandCOMPprovidedirectionandaimsoflanduse,developmentandconservationandtheCMaFandtheCoMaPconductamanagementofthem.ConsistencybetweenplansishighbecauseofaStrlcttopandbottomrelation.TherelationbetweentheCoPandotherrelatedacts(byotherministries)areclear,too.InadditiontheCPandCoPareinthehigherpositionofspatialplanningsystemincompetentadministrativearea,andtheyfunctionasanintegratedplanninginacityoracounty.AsasmallcountryKorea,toapplyingdifferentplanningsystemtotownsideandcountrysideratherbroughtanenvironmentorlandscapeimpoverishmentinnon-urbanareas,thusitbecamepossibletoapplytechniqueofcityplanningtoanon-urbanareaunderestablishmentofnewactsof.AsaresulttheKoreanplanningsystembecamesimplestructure,butthestrictrelationBetweenahigherplanandalowerplanmaybringstandardizationandstiffeningofplanning.thereforeitbecomebasicsubjectshowtosurpassthesimplewayofthinkingofcityplanningsystem,howtoapplyotherrelatedplansandlocalandnationalidentityintoplans,andhowtointegrate/useeffectivelyministries'viewpoints.三、韓國國土規(guī)劃體系韓國系統(tǒng)要比日本和中華人民共和國簡樸些,反映了小國家領(lǐng)土。重要空間規(guī)劃關(guān)于行為,是國家領(lǐng)土()和規(guī)劃與國家領(lǐng)土(),而主管機關(guān)僅僅是建筑部和交通運送部。這兩個籌劃所提供行為完全分擔(dān)責(zé)任。CNTP運用土地資源、防止災(zāi)害和環(huán)保和改進等,對國家、地區(qū)、直轄市發(fā)展方向和將來形象提供主線和長遠政策,RP(由規(guī)劃和使用法規(guī)定管理國土)是個全面籌劃,涵蓋廣泛區(qū)域(如果有必要即設(shè)立)擴大到好幾種都市和縣,旨在大規(guī)模地在都市功能分擔(dān)責(zé)任,開放空間規(guī)劃、環(huán)境規(guī)劃、景觀規(guī)劃。CP(涉及市區(qū))和COP(涉及非地區(qū)都市)是長期提供全面空間規(guī)劃,兩個籌劃涉及一種總體規(guī)劃和管理籌劃.CMP和COMP提供指引和土地運用,開發(fā)和保護以及CMaF和COMAP是她們目的進行管理?;I劃之間一致性,就像頂部和底部關(guān)系。COP和其她部委關(guān)系是明確。此外,CP和CoP作為主管行政區(qū)域空間規(guī)劃體系較高位置對一種都市甚至國家進行綜合規(guī)劃。韓國作為一種小國,對城鄉(xiāng)和農(nóng)村采用不同規(guī)劃制度,以帶來非都市地區(qū)環(huán)境或景觀發(fā)展,因而它使得運用都市規(guī)劃下建立新行為非市區(qū)成為也許。因而,韓國籌劃體制成為構(gòu)造簡樸,但嚴格意義上,較高和較低籌劃也許帶來原則化,因而基本問題是如何超越了都市規(guī)劃體系,思考如何合用其她有關(guān)籌劃和地方、國家籌劃,以及如何簡樸辦法整合、使用部委觀點。4Conclusions(1)Actsandcompetentministriesrelatednationalterritoryplan:OnemaysaythatJapanandChinahavesimilarplanningsystem,as.showing(Fig.l)whenthereispluralactsthatsupportnationalterritoryplan,therelationbetweenplansandaroleofeachministryshouldbemadeclear.(2)Verticalrelationofplans:ChinaandKoreahascomparativelyclearverticalrelationbetweenplansbecausetheybothhavestrongnaturetotransmitplanningpolicyfromtoptobottom.However,aneachplanofChinawasstrictlyboundtoadministrativeunitandinJapantheroleofsemi-wideareaplanningisrelativelyweak.Inthefuture,settingwide-areaplanningbeyondsingleadministrativeunitwouldbepossibletoconnecteffectivelythehigherplansandthelowerplans,accordingtoeconomic,culturalandnaturalconditions.(3)Spatialareacoveredbynationalterritoryplan:InJapantheareacoveredbyacertaincomprehensiveplanisactuallylimitedtocityplanningarea(CPA).Spatialplanningdoesnotcoveralmostnon-CPAarea;thereforecomprehensiveenvironmentalorlandscapeimprovementfromaviewpointofmulti-directionsispossiblydifficult.(4)Weightofplanning:WemightsayJapanputstheweightofplanningtourbanarea,andKorea,theoretically,putstheweighttobothurbanandruralareaequally.InChina,nowadaystheweightofplanningisparticularlyontileurbanareawithhigheconomicgrowth.Howeveritisimportanttaskstoestablishnon-urbanarea'scomprehensiveplanninginthreecountries,inotherwords,toconservetheirownnature,cultureandlandscapesofnon-urbanarea,strengtheninglocalidentityandoriginality.Throughthisstudy,wecanreferthatthereisabigrelationbetweenthesizeofnationalterritoryandacharacteroftheplanningsystem.Widernationalterritoryhasmoremultistageadministrativeunit,andthepl

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