基于政策法规的乡村地区国土空间规划用途边界管理国际比较
Comparison of Boundary Management System of National Territorial Spatial Planning Based on Policies and Regulations in Rural Areas in Various Countries
作者信息
滕潇 金泽大学讲师，清华海峡研究院执行主任
沈振江 复旦大学讲座教授，金泽大学与福州大学“空间规划与可持续发展”国际联合实验室（FZUKU-LAB SPSD）主任（通讯作者）
方国安 上海市地质调查研究院院长
雷若澜 清华海峡研究院研究员
吴军和 清华海峡研究院研究员
摘要 为了促使乡村地区形成合理、可持续发展的国土空间，本文基于政策和法规分析了各国乡村地区国土空间规划用途边界划分依据和农用地管理体系。通过对不同国家乡村地区的政策、规划体系、法律体系的梳理，明确用途边界中城乡关系划分的依据、乡村规划编制的内容，进而分析农用地流转和开发许可的管理方式及侧重点。首先，相关的法规政策是合理发展国土空间的保障，各国在农业发展的不同阶段都有相应的政策。其次，规划是由国家和地方分级制定的，有不同的规划目标，如在国家层面，规划目标是提高农业生产能力、制定全球化农业市场发展战略、保护国内农业等；在地方层面，政府根据农业战略规划确立乡村整治项目的实施方针，并进行开发整治。最后，在城乡用途边界管理中，既有城乡一体的政策，也有严格区分城乡边界的法规，如欧美国家追求城乡一体化，东亚国家严格制定城市、乡村、生态边界的规划。总的来说，东亚国家与欧美国家有着不同的城乡规划理念与用途边界管理体系。
关键词 城乡法定边界；法规体系；农用地转用；乡村规划编制；规划许可
Abstract In order to promote the rational and sustainable development of rural areas, this paper analyzes the zone boundary division and agricultural land management system of national territorial spatial planning based on policies and regulations in ruralareas. By sorting out the policies, planning and laws systems of rural areas in various countries, this paper clarifies the foundation for the division of urban-rural relations in the boundary of urban and rural zone and the content of rural planning, and then analyzes the management mode and emphasis of agricultural land transformation and development permission. First of all, relevant laws and policies are the guarantee for the rational development of territorial spatial form. Each country has corresponding policy stages according to the course of agricultural development. Secondly, planning is made at the national and local levels, with different objectives, such as improving agricultural production capacity, developing a global agricultural market development strategy, and protecting domestic agriculture. Based on the relevant agricultural strategic planning, the government establishes the implementation guidelines for rural renovation projects, then develops and renovates them. Finally, in the field of management of urban and rural zone boundary, there are both urban and rural integration, and strict laws to distinguish urban and rural boundary. For example, European and American countries pursue urban-rural integration, while East Asian countries strictly formulate urban, rural and ecological boundary planning. Generally speaking, East Asian countries have different urban and rural planning concepts and use boundary management systems from European and American countries.
Keywords legal boundary between urban and rural areas; laws and regulations system; agricultural land transformation; rural planning formulation; planning permission
来源：《城乡规划》2022年第3期
