日本、中国与韩国的国土空间规划体系样本

SpatialPlanningSystemofNationalTerritoryinJapan，ChinaandKorea日本、中国和韩国国土空间计划体系KyungrockYE,Jun-huaZHANG,TakeshiKINOSHITA,Xing-yanWANGAbstract:ThisstudyconductedthenationalterritoryplanningsystemofJapan,ChinaandKorea,onapremisetodiscusspossibilityofintegratedspatialplanningofEasternAsia.Thepurposeofthisstudyistoarrangemajorspatialplansofthreecountriesaccordingtoclassificationofurbanandnon-urbanarea,andtoclarifyingroleofeachspatialplan.。文摘:本研究是在进行中国、日本、韩国国土计划体系前提下,探讨整个亚洲东部综合空间计划可能性。本研究目标是依据城市区域和非城市区域分类，明确大空间计划下三个国家在计划中所饰演角色。Asaresult,Korea,thesmallestcountryamongthreecountries,hasonesystemonlanduse,developmentandconservation,consideringwholenationalterritorytobeonecityplanningarea,andaroleandrelationofeachspatialplaniscomparativelyclear.Ontheotherhand,China,thelargestcountryamongthreecountries,althougharoleandrelationofeachspatialplanareclearinurbanarea,ageneralrecognitionfornecessityofnon-urbanareaplanningisweak.IncaseofJapan,thecharacteristicsthatthespatialplanningsystemisconsistedonthedivisionintourbanareaandnon-urbanarea,isverysimilartoChina,andthereishardlyrelationbetweenthesetwokindsofspatialplanning.最终,作为最小国家韩国,已拥有一个针对土地使用、发展和保护体系,它把整个国家领土是一个城市计划区考虑，每个空间计划角色和关系较为清楚。其次,作为最大国家中国,尽管市区空间计划是很明确，但大家对非城市空间计划重视程度全部很微弱。在日本，空间计划系统对城市区域和非城市地域划分标准跟中国是很相同,这两种类型空间计划几乎没有肯定关系。Keywords:Nationalterritoryplan;Japan;China;Korea;Spatialplanning;EasternAsiaCommunity.关键词:国土计划;日本、中国、韩国、空间计划、东亚共同体。RecentlyitisfrequentlydiscussedontheEasternAsiaCommunity.Thisisstillmainlyfocusedontheeconomy,butinenvironmentalaspectwealsohavesomecommonseriousproblems,e.g.sustainabledevelopment,bio-diversity,outstandinglandscape/natureconservation,balanceddevelopmentoftownandcountry,culturalassetsconservation/utilizationandseveralenvironmentalproblems.Inordertosettlethesesubjects,itisimportantnotonlytochallengebyeachcountrybutalsotoprepareacommonframeworkforcomprehensivespatialplanningcoveringwholeeasternAsia..最近东亚共同体常常被讨论，关键关注仍然是经济问题,但在环境保护方面我们也有部分常见严重问题需要处理,如可连续发展、生物多样性、优异景观、自然保护、城镇协调发展、文化遗产保护、环境问题等。处理这些问题,关键不仅是对每个国家挑战,而是需要准备一个常见全方面覆盖整个亚洲空间计划框架。ThisstudywasdonetoclarifythesimilaritiesanddifferencesofnationalterritoryplanningsystemofJapan,ChinaandKoreaasafirststeptodiscussonthesubjectsandpossibilitiesofcomprehensiveEasternAsianspatialplanning.UntilnowthenationalterritoryplanningsystemofJapanandKoreahavealreadybeenstudied,butthecomparativestudybetweenthreecountriesincludingChinafromtheviewpointofspatialplanninghasneverseenbefore.Weusedmainlyrelatedliteraturesonplanningsystemandgovernment'sofficialwebsitesofeachcountrytoclarifythepurposesofthisstudy.Andweclassifiedeachcountry'smajorspatialplansintofourcategories,national,regional,urbanareaandnon-urbanarea,anddiscussedontheverticalandhorizontalrelationbetweenthem.本研究之目标：第一步是明确日本、中国和韩国国土计划体系异同,讨论综合东亚空间计划课题和可能性。迄今为止,日本和韩国国土计划体系已经进行了比较研究阶段,但从空间计划角度对三个国家比较研究还未进行。我们关键在每一个国家计划系统相关文件、政府官方网站上说明了本篇研究目标。我们根据整个大空间计划把每个国家分为国家、地域、城市区域和非城市区域四类,讨论垂直和水平关系。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、日本国土计划系统综合国家发展行动(1950年)、土地利用总体计划(1974年)和城市计划条例(1968)全部支持日本关键空间计划(表1)。这些全部是其管辖下土地、基础设施、运输。CNDP提供在全国土地利用、保护和发展、社会资本,交通政策概念计划。依据该计划,CPDP和MLP已经开始准备。这个能提供土地利用总体计划计划包含对国家土地利用分类PLP和NLP和对县级土地利用分成五类(镇、农、林、天然公园和自然保护区)LUMP。图1显示了两个在国家和地域水平上关键空间计划行为,但这种关系和角色被行为和计划分享，市区和非市区域代表计划是由土地利用总体计划MLP和城市计划CP,但二者之间关系尚不清楚,其实只有CP饰演着关键角色来控制土地使用。很显著,日本国土计划分为NLP和CP，而区域计划影响是较小。所以,市区关键由三个行为控制,而其它非市区是依靠其它相关行为。LUMP对这个地域分类支持主管部门和行为,并单独应用于各区域计划中。换句话说,日本国土计划强调城市地域计划和非地域并没有全方面结合相关计划,区域计划还相对微弱。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、中国国土计划体系土地管理行为(1986)、城市计划条例(1989)、村庄和国家计划法规(1993)支持中国关键空间计划。主管部门分为国土资源部、建设部、国家发展和改革委员会。依据土地管理法行政当局（县上级）拟订CNLUP分类未来土地利用和控制、规范施工现场净体积、保护农田。依据城市计划法，NTCP提供了城市远期层次人口规模,从整个城市综合经济、社会和资源和生态环境协调发展战略高度计划国土面积。CP是由ComP（指出以后发展方向和土地使用单位行政上级县），DP（这是该区面积编写），和DEP（提供其它细节项目）。VCP提供乡村和国家发展方向和安置计划生产和生活设施，如交通，灾难预防，商业和绿化等，加强地方认同。RP是一个涵盖了经济社会广泛多元行政区划区计划，协调经济发展和资源管理，就仿佛'长江三角洲地域计划'。这个计划可能性，以发挥广域（理论上整个国民经济领域中作用）超出目标之间城市规模，交通网络，利用、开发和资源保护等计划调整行政区域，但作为一个空间计划，力度和管理基础相对微弱。另外，每一个字母方法行为是受到要求，VCP必需调整自己CP和CLUP，而且CF要调整自己CLUP和RP，但实际上错误常常发生，因为常常计划困难调整各部委之间和它们之间共享计划作用尚不清楚。其次，行政当局县上层有责任准备每个计划，所以有些人说，有很多反复计划，不过，几乎整个国家领土（包含城市地域和非城市地域）亲密受这些CP和VCP影响（表1）。所以，在国家国土计划上有类似计划概念跟主管部门数目一样多，从而反复计划也变得很高。这个系统使计划覆盖城市和农村地域全部已经建立，但每个计划往往被绑定到一个行政机关，所以，一个总体思绪如RP是发扬，能够调整包含部分省在内大区域，和包含一个区域及市区域。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、韩国国土计划体系韩国系统要比日本和中国简单些，反应了小国家领土。关键空间计划相关行为，是国家领土（）和计划和国家领土（），而主管机关仅仅是建筑部和交通运输部。这两个计划所提供行为完全分担责任。CNTP利用土地资源、预防灾难和环境保护和改善等，对国家、地域、直辖市发展方向和未来形象提供根本和长远政策，RP（由计划和使使用方法要求管理国土）是个全方面计划，涵盖广泛区域（假如有必需即设置）扩大到好多个城市和县，意在大规模地在城市功效分担责任，开放空间计划、环境计划、景观计划。CP（包含市区）和COP（包含非地域城市）是长久提供全方面空间计划，两个计划包含一个总体计划和管理计划.CMP和COMP提供指导和土地利用，开发和保护和CMaF和COMAP是她们目标进行管理。计划之间一致性，就像顶部和底部关系。COP和其它部委关系是明确。另外，CP和CoP作为主管行政区域空间计划体系较高位置对一个城市甚至国家进行综合计划。韩国作为一个小国，对城镇和农村采取不一样计划制度，以带来非城市地域环境或景观发展，所以它使得利用城市计划下建立新行为非市区成为可能。所以，韩国计划体制成为结构简单，但严格意义上，较高和较低计划可能带来标准化，所以基础问题是怎样超越了城市计划体系，思索怎样适用其它相关计划和地方、国家计划，和怎样简单方法整合、使用部委见解。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.Widernationalterritoryhasmoremultista