日本国土空间用途管制的法规边界
Regulatory Boundaries of Land Use Control in Japan
作者信息
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
滕潇金泽大学讲师，清华海峡研究院执行主任
方国安上海市地质调查研究院院长
摘要本文通过对日本国土空间用途管制法律体系的梳理，明确日本国土空间用途管制的用途边界的划定以及管理的法规依据，考察日本如何通过法律体系进行国土空间的综合统筹、规划、利用与管理，并获得开发许可。根据日本《国土利用规划法》第 9 条，都道府县制定土地利用基本规划，将国土分为城市地域、农业地域、森林地域、自然公园地域及自然环境保护地域五大地域，即国土空间用途管制的用途边界的分类，这是用途管制的基础，也是国土空间规划的基本内容。国土空间用途管制的用途边界的分类是规划行为，也是国家的公共行为，规划主体是政府，政府依据国土资源与相关法规进行国土空间用途管制的用途边界划分。国土空间用途管制的本质是追求公共福祉，在土地财产权和国土利用的公共性基础上，确保国民健康的生活环境，坚持国土均衡发展的基本理念。日本的国土空间用途管制法律体系由《国土利用规划法》和个别法(五大地域类型法律)构成，规定了以土地利用为基础的主法与个别法叠加的综合管理体系。用途管制是依法进行的制度化的行政管理工作，依据社会经济发展政策、法律及规划对国土进行合理、有效的管控。
关键词法规边界;用途管制;土地所有权;用途变更;自然生态空间;人类活动空间
Abstract This research clarifies the legal basis for the management of land use control in Japan, through sorting out the legal system of land use control. And investigates how Japan carries out comprehensive planning, utilization and management of land use as well as development permits through the legal system. According to article 9 of the Japanese National Land Use Planning Act, prefectures should formulate land use master plans, where land is divided into five areas, urban areas, agricultural areas, forest areas, nature park areas and nature conservation areas. Namely, the regulatory boundary classification of land use is the basis of land use control, which is also the basic content of spatial planning. The main body of planning is the government, which carries out territorial spatial planning based on national land resources and relevant laws and regulations. The essence of land use control is to pursue public welfare, ensure a healthy living environment for the people and balance the development rights and the publicity of land use. Japan's legal system of land use control is formed by National Land Use Planning Act and individual law (laws of five areas), which stipulates a comprehensive management system. Land use control is an institutionalized administrative work to exercise reasonable and effective control by carrying out in accordance with social and economic development policies, laws and plannings.
Keywords regulatory boundary; land use control; land ownership; land use transfer; natural ecological space; human activity space
来源：《城乡规划》2022 NO.2
