国土空间规划立法的逻辑路径与基本问题
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摘要
研究目的:基于国土空间规划立法的紧迫性和复杂性,在对中国现行空间性规划法律法规体系总结梳理的基础上,提出并分析新法制定的逻辑思考路径以及涉及的基本问题。研究方法:文献分析法和对比分析法。研究结果:按照"立法前需理清的相关理论问题——涉及新法自身的基本功能定位——需整合后纳入新法的现有规定"这一逻辑思考路径,可以发现新法制定需要解决的基本问题,进而得出新法的初步框架。研究结论:(1)从节约立法成本和提高立法效率角度,新法的制定可以借鉴现行多数规划立法采用的以规划编制和实施程序为主线的立法框架;(2)立法质量的提高依赖于相关实体性规定的完善,包括规划权的性质界定、相关私主体空间权益的确认与保护、规划权力的合理分配等;(3)新法的制定和实施不但能为统一的空间规划提供法律依据,也会对其他相关规划立法的废、改、释提出要求,但新法的具体实现形式还有待学界继续探讨和论证。
The research purpose of this paper is to propose and analyze the logical thinking path of the new legislation on spatial planning and the relevant legal issues involved, based on a systematic analysis of the current legal system on spatial planning in China. The research method includes literature review and comparative analysis. The results show that in accordance with the logical thinking path, which is" relevant legal theories need to be clarified beforehand—the legal status of the new legislation—existing rules that can be included in the new law with integration", it is easier to define the basic issues involved in the making of the new legislation. The conclusions are as follows: 1)from the perspective of saving cost and improving efficiency, formulation of the new legislation can draw on the legislative framework(which focuses on the procedure of preparing and implementing specific plans) adopted by the majority of current planning laws and regulations; 2)the improvement in the quality of the new legislation, however, relies on the perfection of relevant substantive provisions, such as the legal definition of the planning power, the confirmation and protection of spatial rights and interests of private entities, and rational division of planning power; 3)the making and promulgation of the new legislation not only provide a legal basis for the unified spatial planning, but also call for repeal, modification, or interpretation of other relevant planning law. Nonetheless, more discussions and analysis are still needed concerning the form of the new legislation.
The research purpose of this paper is to propose and analyze the logical thinking path of the new legislation on spatial planning and the relevant legal issues involved, based on a systematic analysis of the current legal system on spatial planning in China. The research method includes literature review and comparative analysis. The results show that in accordance with the logical thinking path, which is" relevant legal theories need to be clarified beforehand—the legal status of the new legislation—existing rules that can be included in the new law with integration", it is easier to define the basic issues involved in the making of the new legislation. The conclusions are as follows: 1)from the perspective of saving cost and improving efficiency, formulation of the new legislation can draw on the legislative framework(which focuses on the procedure of preparing and implementing specific plans) adopted by the majority of current planning laws and regulations; 2)the improvement in the quality of the new legislation, however, relies on the perfection of relevant substantive provisions, such as the legal definition of the planning power, the confirmation and protection of spatial rights and interests of private entities, and rational division of planning power; 3)the making and promulgation of the new legislation not only provide a legal basis for the unified spatial planning, but also call for repeal, modification, or interpretation of other relevant planning law. Nonetheless, more discussions and analysis are still needed concerning the form of the new legislation.
引文
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[19]彭錞.中国集体土地征收决策机制:现状、由来与前景[J].华东政法大学学报,2017(1):46-59.
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(1)严金明.空间规划立法路径和框架建议,第11期UP论坛“协同推进国土空间开发保护法与空间规划立法”,北京,2018年10月31日。
[2]严金明.土地规划立法的导向选择与法律框架构建[J].中国土地科学,2008,22(11):4-9.
[3]叶强,栗梦悦.应然与实然:《城乡规划法》立法的改进和完善[J].规划师,2017,33(3):43-48.
[4]张忠利.生态文明建设视野下空间规划法的立法路径研究[J].河北法学,2018,36(10):45-58.
[5][荷]弗雷德·霍马,彼得·扬.空间规划与开发法导论--荷兰经验[M].李林林,谷玮,等译.北京:地质出版社,2018:1-2.
[6]VAN DER MOLEN P.Property and administration:comparative observations on property rights and spatial planning with some cases from the Netherlands[J].Administration&Society,2013,47(2):171-196.
[7]REIMER M,GETIMIS P,BLOTEVOGE H.Spatial planning systems and practices in Europe:a comparative perspective on continuity and changes[M].Routledge,London,2014:1.
[8]周静,沈迟.荷兰空间规划体系的改革及启示[J].国际城市规划,2017,32(3):113-121.
[9]魏广君.空间规划协调的理论框架与实践探索[D].大连:大连理工大学,2012:12.
[10]王向东,刘卫东.中国空间规划体系:现状、问题与重构[J].经济地理,2012,32(5):7-15.
[11]严金明,陈昊,夏方舟.“多规合一”与空间规划:认知、导向与路径[J].中国土地科学,2017,31(1):21-27,87.
[12]宋彪.规划立法论[J].经济法学评论,2016,16(1):25-47.
[13]张伟,刘毅,刘洋.国外空间规划研究与实践的新动向及对我国的启示[J].地理科学进展,2005,24(3):79-90.
[14]沈守愚.土地法学通论(下册)[M].北京:中国大地出版社,2002:407-410.
[15]郭钦铭.海峡两岸空间权与地上权之比较与研究[J].海峡法学,2016,18(3):11-20.
[16]陈华彬.空间建设用地使用权探微[J].法学,2015(7):21.
[17]刘玉姿.征收的规划控制[J].城市规划,2015,39(8):56-62.
[18]何源.德国建设规划的理念、体系与编制[J].中国行政管理,2017(6):135-141.
[19]彭錞.中国集体土地征收决策机制:现状、由来与前景[J].华东政法大学学报,2017(1):46-59.
[20]郭昌盛.规划纲要的法律性质探析[J].上海政法学院学报(法治论丛),2018(3):57-66.
[21]李倩.我国将构建自然资源统一调查监测体系[N].中国自然资源报,2018-08-02.
(1)严金明.空间规划立法路径和框架建议,第11期UP论坛“协同推进国土空间开发保护法与空间规划立法”,北京,2018年10月31日。