（城市规划与设计专业论文）基于“三规合一”的新乡村规划体系构建研究.pdf

based on the three rules of new countryside and planning system building research a thesis submitted to chongqing university in partial fulfillment of the requirement for the degree of master of engeering by shurong qin supervised by lian duan major：urban planning and design college of architecture and city planning of chongqing university, chongqing, china october 2011 中文摘要 i 摘 要 目前我国的规划体系庞大复杂，规划间各成体系，相互关联性较少，导致我 国目前的规划存在很多不完善的问题，通过借鉴国内外规划体系以及规划经验， 认真学习城乡规划法的新思想，作者认为曾被很多专家提起的“三规合一” （指城乡规划，国民经济与社会发展规划，土地利用总体规划）的思想适应了社 会发展的潮流，对“三规合一”的研究有重要的现实和理论意义。然而，鉴于我 国目前的国家体制和现状，国家和省级区域由于土地面积广阔，不管在管理层面 还是研究层面都有多种因素相互制约，复杂性可想而知，因此，目前国家和省级 层面的“三规”仍需保持其独立性和系统性，而县级及以下层面的“三规”由于 其行政范围的独特性以及目前我国乡村发展的重大要求迫切需要相互协调和融 合，总之，县级及以下层面 “三规合一”的研究有其急迫性和可操作性。 首先，目前我国的县规划体制改革正在紧张进行，县体制的不合理性很多专 家早已论证，特别是在规划层面，存在着规划间缺少联系，规划实施可操作性差， 规划编制技术水平偏低等问题；其次：目前新农村建设正在如火如荼的进行中， 完善的乡村规划体系是有效推进新农村建设的重要保障；第三：我国乡村建设面 临的困难重重，规划间的各自“独立性”导致国家支持农村建设的物力、财力、 人力等资源与乡村规划缺少联系，乡村建设中往往存在非建设用地被占用的问题， 其主要原因就是乡村层面的规划指引和控制不到位，因此县级及以下层面需要通 过对“三规”之间的矛盾性和关联性进行研究，进而结合实践经验探讨目前“三 规合一”存在的种种问题，针对问题探索乡村层面“三规合一”的路径，最终构 建基于“三规合一”的新乡村规划体系。 本文首先通过研究国内“三规合一”的实践，总结出目前“三规合一”在工 作开展、技术路线等方面的经验以及存在的问题。其次，针对县级及以下层面“三 规”即“乡村规划”、“国民经济社会发展规划”和“土地利用规划”，对其自 身问题以及相互之间的矛盾因素和关联性进行分析研究；第三，基于“三规”矛 盾性和关联性问题，结合国内“三规合一”实践经验和问题，剖析出目前我国乡 村规划“三规合一”会遇到的种种障碍；第四，针对目前乡村规划“三规合一” 出现的问题，通过调整“三规”的关系，改变“三规”的重心，构建“三规合一” 的平台，最终探索乡村规划“三规合一”的路径；最后，通过综上研究，构建基 于“三规合一”的新乡村规划体系，新乡村规划体系的主要目标，主要内容，主 要原则以及新乡村规划体系的主要构架等内容，进而通过具体的运作程序来保障 新乡村规划体系的实施性，最终达到通过“三规合一”的思想构建的新乡村规划 重庆大学硕士学位论文 ii 体系能有效指导乡村的建设。 关键词：关键词：“三规合一”，运作程序，新乡村规划体系 英文摘要 iii abstract the planning system in china at present complex, planning is a system, each relationship of the less, lead to chinas current plan has a lot of the problem is not perfect, through the planning system at home and abroad and planning experience, earnest study of urban and rural planning new ideas, the authors think that has been a lot of experts and a three rules (refers to rural and urban planning, the national economy and social development planning, land use planning) thought it adapts the social development trend, three rules of the unity of the research has important theoretical and practical significance. however, in view of our countrys current national system and the present situation, the national and provincial area because the land the vast area, no matter in the management level or research levels have a variety of factors restraining each other, complexity can be imagined, therefore, the present state and provincial level three rules still needs to keep its independence and systematic, at the county level and below the level and three rules because of its administrative range of uniqueness and at present our country rural development major requirements of the urgent need to coordinate each other and fusion, in short, the county level and the level of the combination of three rules research has its urgency and operability. first of all, at present our country county planning system reform is nervous, county system the irrationality of many experts had demonstrated, especially in the planning level, there is lack of contact between planning, planning implementation so poor, planning technical level is low; next: the new rural construction is being carried out in, perfect rural planning system is effective in the new rural construction of the important guarantee; third: our country rural construction faces difficulties, planning of their respective independence between causes the country support rural construction of human resources and material and financial resources such as rural planning lack of contact, rural construction often exist in the construction land occupied a problem, the main reason is the guide and country level planning control does not reach the designated position, so the level at the county level and the need for three rules by the contradiction and relationship between study, which combined with practical experience probes into the present three rules the various problems of unity, in view of the problem to explore the unity of the country level three rules path, finally based on three rules of the combination of new rural planning system. 重庆大学硕士学位论文 iv this paper first through the research and practice in the three rules of, summarized the present three rules in work and carry out technical route, and other aspects of the experience and the existing problems; second, at the county level and the level for three rules that rural planning the national economic and social development planning and land use planning, in its own problems and of conflicting factors and correlation analysis research; third, based on the three rules contradiction and relevance in the three rules, combined with the practical experience and problems, and analyzes the at present our country rural planning and three rules will meet all kinds of obstacles; fourth, in the rural planning and three rules to the problems, and by adjusting the relationship between the three rules, change the center of gravity of the three rules, the construction of the three rules the unity of the platform; finally explore rural planning the unity of the three rules paths; finally, through the in research, based on three rules of the combination of new rural planning system, new rural planning systems main goal, and the main contents, main principles and new rural planning system of the main content such as architecture, and then through the concrete operation procedure to ensure the new rural planning the implementation of a system of sex. eventually reach through the three rules of the combination of the new rural construction thought planning system can effectively guide the rural development. keywords：three rules of unity, operational plan, new rural planning system 目 录 v 目 录 中文摘要中文摘要 . i 英文摘要英文摘要 . iii 插图及附表目录插图及附表目录 . v 1 绪绪 论论 . 1 1.1 研究背景研究背景 . 1 1.1.1 城乡规划法对乡村规划提出了新要求 . 1 1.1.2 国家发改委开展区县“三规合一”试点研究 . 2 1.1.3 县规划体制改革对乡村规划的完善提出更高要求 . 6 1.1.4 乡村地区规划建设缺乏统筹考虑 . 7 1.2 研究目的意义研究目的意义 . 8 1.2.1 研究目的完善现有乡村规划体系 . 8 1.2.2 研究意义 . 9 1.3 乡村规划乡村规划“三规合一三规合一”的必要性和可行性研究的必要性和可行性研究 . 10 1.3.1 乡村规划“三规合一”的必要性研究 . 10 1.3.2 乡村规划“三规合一”可行性研究 . 12 1.4 研究综述和实践总结研究综述和实践总结 . 14 1.4.1 乡村规划研究综述 . 14 1.4.2 “三规合一”理论研究综述 . 22 1.4.3 “三规合一”实践经验总结 . 24 1.5 研究内容、技术路线与方法研究内容、技术路线与方法 . 34 1.5.1 研究内容 . 34 1.5.2 研究技术路线 . 34 1.5.3 研究方法 . 37 2 “乡村规划乡村规划”、 “国民经济社会发展规划国民经济社会发展规划”、 “土地利用总体规划土地利用总体规划”矛盾性矛盾性 分析与关联性研究分析与关联性研究 . 39 2.1 “三规三规”体系自身研究体系自身研究 . 39 2.1.1 乡村规划体系研究 . 39 2.1.2 县经济与社会发展规划研究 . 48 2.1.3 县乡土地利用总体规划研究 . 51 2.2 “乡村规划乡村规划”、“国民经济社会发展规划国民经济社会发展规划”、“土地利用总体规划土地利用总体规划”矛盾因素分析矛盾因素分析 . 55 2.2.1 乡村规划与经济发展规划矛盾 . 56 重庆大学硕士学位论文 vi 2.2.2 乡村规划与土地利用总体规划的矛盾 . 58 2.3 “乡村规划乡村规划”，“县国民经济社会发展计划县国民经济社会发展计划”、“县级土地利用总体规划县级土地利用总体规划”关联性研究关联性研究 . 60 2.3.1 规划目的和原则一致. 60 2.3.2 规划内容相互交错 . 61 2.3.3 规划空间存在重叠 . 61 2.3.4 规划期限基本一致 . 62 3 乡村规划乡村规划“三规合一三规合一”障碍研究障碍研究 . 63 3.1 规划自身属性阻碍规划自身属性阻碍“三规合一三规合一” . 63 3.1.1 “三规”作用和政府职能不统一 . 63 3.1.2 “三规”从属性不明确 . 63 3.1.3 “三规”法律地位存在冲突 . 64 3.1.4 “三规”体系各自独立，侧重点不同 . 65 3.1.5 “三规”体制各自为政，利益容易产生冲突 . 65 3.2 规划编制过程中存在的障碍规划编制过程中存在的障碍 . 66 3.2.1 乡村规划“三规合一”规划编制费用短缺，编制单位水平低 . 66 3.2.2 “三规”统计口径和技术标准等不同，无法融合 . 66 3.2.3 “三规合一”协调缺乏资料，各项规划信息缺少共享渠道 . 66 3.2.4 “三规”管理部门体制上处于平行级，缺乏共同协调和讨论平台 . 67 3.3 规划实施管理过程中存在的障碍规划实施管理过程中存在的障碍 . 67 3.3.1 县级和乡镇级政府事权有限 . 67 3.3.2 县级管理部门缺乏规划专业人士 . 67 3.3.3 “三规合一”缺少法律保障 . 68 4 乡村规划乡村规划“三规三规合一合一”探索研究探索研究 . 69 4.1 调整乡村规划调整乡村规划“三规三规”的关系的关系 . 69 4.2 明确明确“三规三规”重心的转变重心的转变 . 70 4.2.1 乡村规划的转变 . 70 4.2.2 土地利用总体规划的转变 . 70 4.2.3 国民经济社会发展规划的转变 . 70 4.2.4 小结 . 70 4.3 乡村规划乡村规划“三规三规”的衔接的衔接 . 71 4.3.1 “三规”衔接的平台 . 71 4.3.2 “乡规”与“经规”的衔接 . 72 4.3.3 “乡规”与“土规”的衔接 . 73 4.3.4 三规相互衔接体系 . 75 目 录 vii 4.4 乡村规划乡村规划“三规合一三规合一”路径探索路径探索 . 76 4.4.1 设立 “三规合一”工作协调小组 . 76 4.4.2 统一“三规”编制期限、范围等内容 . 76 4.4.3 统一“三规”经济、人口和用地预测口径 . 76 4.4.4 统一用地分类和技术标准 . 76 4.4.5 项目审批一套办事规程 . 78 4.4.6 规划管理一套协作流程 . 79 4.4.7 构建县域规划信息共享平台 . 79 4.4.8 引进“三规”复合型专业人才 . 80 4.4.9 “三规”管理部门逐渐相互融合 . 80 5 新乡村规划体系的构想新乡村规划体系的构想 . 81 5.1 新乡村规划体系内涵新乡村规划体系内涵 . 81 5.1.1 主要目标 . 81 5.1.2 主要内容 . 81 5.1.3 主要原则 . 83 5.2 新乡村规划体系构成新乡村规划体系构成 . 85 5.2.1 较现有乡村规划体系新增内容 . 85 5.2.2 较现有乡村规划体系完善内容 . 89 5.2.3 原乡村规划体系内容 . 94 5.2.4 小结 . 95 5.3 新乡村规划体系运作程序新乡村规