日本、中国与韩国的国土空间规划体系样本.doc

nSpatial Planning System of National Territory in Japan，China and Korea日本、中国和韩国国土空间计划体系Kyungrock YE, Jun-hua ZHANG, Takeshi KINOSHITA, Xing-yan WANG Abstract: This study conducted the national territory planning system of Japan, China and Korea, on a premise to discuss possibility of integrated spatial planning of Eastern Asia. The purpose of this study is to arrange major spatial plans of three countries according to classification of urban and non-urban area, and to clarifying role of each spatial plan.。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。As a result, Korea, the smallest country among three countries, has one system on land use, development and conservation, considering whole national territory to be one city planning area, and a role and relation of each spatial plan is comparatively clear. On the other hand, China, the largest country among three countries, although a role and relation of each spatial plan are clear in urban area, a general recognition for necessity of non-urban area planning is weak. In case of Japan, the characteristics that the spatial planning system is consisted on the division into urban area and non-urban area, is very similar to China, and there is hardly relation between these two kinds of spatial planning.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。Key words: National territory plan; Japan; China; Korea; Spatial planning; Eastern Asia Community.关键词:国土计划;日本、中国、韩国、空间计划、东亚共同体。Recently it is frequently discussed on the Eastern Asia Community. This is still mainly focused on the economy, but in environmental aspect we also have some common serious problems ,e.g.sustainable development, bio-diversity, outstanding landscape/nature conservation, balanced development of town and country, cultural assets conservation/utilization and several environmental problems. In order to settle these subjects, it is important not only to challenge by each country but also to prepare a common framework for comprehensive spatial planning covering whole eastern Asia.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。This study was done to clarify the similarities and differences of national territory planning system of Japan, China and Korea as a first step to discuss on the subjects and possibilities of comprehensive Eastern Asian spatial planning. Until now the national territory planning system of Japan and Korea have already been studied , but the comparative study between three countries including China from the viewpoint of spatial planning has never seen before. We used mainly related literatures on planning system and governments official websites of each country to clarify the purposes of this study. And we classified each countrys major spatial plans into four categories,national, regional, urban area and non- urban area, and discussed on the vertical and horizontal relation between them.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。1 National Territory Planning System of Japan The Comprehensive National Development Act(1950), Land Use Planning Act(1974) and City Planning Act (1968) support Japanese major spatial planning (Table 1). These are all under the jurisdiction of the Ministry of Land, infrastructure and Transport. The CNDP provides tong-range visions on nation-wide land use, development and conservation, social overhead capital, and a traffic policy. According this plan, the CPDP and MLP are to be prepared. The Plans provided by Land Use Planning Act includes NLP and PLP on the perspective of effective national land use and LUMP that classified prefectural land use into five areas (town, agriculture, forest, natural park and natural conservation area). Fig. 1 shows that there are main two spatial plans by two acts at national and regional level, but the relation and a role sharing between the acts and plans.Representative plans of urban area and non-urban area are the MLP by Land Use Planning Act and the CP by City Planning Act, but the relation between the two is not clear and actually the only CP plays a key role to control land use. it is clear that the Japanese national territory planning is divided into NLP and CP and the role of regional planning is relatively small. Therefore the area that is closely covered by main three acts is only city planning area, the other non-urban area is depended on other related acts (Fig.1). The area classification by LUMP supports competent ministries and acts, and separate plans are applied to each area. In other words, one may say that the Japanese national territory planning stresses the urban areas plans and in non-urban areas there is no comprehensive plan that unifies the related plans (Fig. 1) and a frame/role of regional planning is relatively weak.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.National Territory Planning System of China The Land Management Act (1986), City Planning Act (1989), and the Village and Country Planning Regulations (1993) support Chinese major spatial planning. The competent ministries are classified into the Ministry of Land and Resources , the Ministry of Construction , and the National Development and Reform Commission. Under the Land Management Act the administrative authorities (upper level of prefecture) prepare the CNLUP to classify the future land use and control, to regulate net volume of construction site, and to protect farmlands. Under the City Planning Act, the NTCP provides a long-range hierarchy of cities population size and city planning area in the whole national territory from the comprehensive strategic viewpoint of economical and social development in harmony with resources and ecological environment. The CP is constituted with ComP (indicates the future development direction and land use of administrative units upper level of prefecture), DP (which is prepared in the district area), and DeP (provides other detail items). The VCP provides village and countrys development direction and placement plan of production and life facilities such as transport, disaster prevention, commerce and greening, etc., enhancing local identity. The RP is a wide area planning of an economic community covering plural administrative units to harmonize economical development and resources management like as The Yangtze River Delta Area Plan. This plan has possibility to play a role of wide area (theoretically whole national area) adjustment beyond a wall between administrative areas targeting a plan of city size, transport networking, utilization, development and conservation of resources, etc., but it is said the power and management base as a spatial plan are relatively weak 。 By the way in the letter of each act it is prescribed that the VCP has to adjust itself to CP and CLUP, and the CF has to adjust itself to the CLUP and RP, but actually false setting has occurred frequently because of a difficulties of planning adjustment between different ministries and unclear share of the role between these plans. On the other hand, the administrative authorities upper level of prefecture has a responsibility to prepare each plan, thus it is said that there is much repetition of a plan，however, the almost whole national territory (both urban areas and non-urban areas) is closely covered by these CP and VCP (Table 1). As a result, in the national territory.planning there are similar planning concepts as much as the number of competent ministries, possibility to become a repetition plan is high. This planning system make covering both town and country area has already been established, but each plan is tend to be bound to an administrative authority, therefore a general idea such as RP is need to spread, that can adjust the matters in wide area covering some provinces and in medium area covering some cities and prefectures.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。3 National Territory Planning System of Korea The Korean system is simpler than the Japanese and the Chinese one, reflecting small national territory. Major spatial planning related acts are the Framework Act of National Territory() and the Act on Planning and Use of National Territory () ， and the competent authority is the Ministry of Construction and Transport only. Plans provided by these two acts completely share in responsibility. The CNTP provides fundamental and long-range policies on the nation/ region/municipalitys development direction and future image, utilization and management of land resources,disaster prevention and environmental conservation and improvement, etc. The RP (provided by the Act on Planning and Use of National Territory), which is comprehensive plan covering wide area (that is set if necessary) to extend to several cities and counties, aims to share in responsibility of urban functions at wide scale, open space planning, environmental planning, and landscape planning. The CP (covering urban areas) and the CoP (covering non-urban of areas) are the long-range comprehensive spatial planning, and both plans consist of a master plan and a management plan. The CMP and COMP provide direction and aims of land use,development and conservation and the CMaF and the CoMaP conduct a management of them. Consistency between plans is high because of a Strlct top and bottom relation. The relation between the CoP and other related acts (by other ministries) are clear, too. In addition the CP and CoP are in the higher position of spatial planning system in competent administrative area, and they function as an integrated planning in a city or a county. As a small country Korea, to applying different planning system to town side and countryside rather brought an environment or landscape impoverishment in non-urban areas, thus it became possible to apply technique of city planning to a non-urban area under establishment of new acts of .As a result the Korean planning system became simple structure, but the strict relation Between a higher plan and a lower plan may bring standardization and stiffening of planning.therefore it become basic subjects how to surpass the simple way of thinking of city planning system, how to apply other related plans and local and national identity into plans, and how to integrate/use effectively ministries 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。 4 Conclusions(1)Acts and competent ministries related national territory plan: One may say that Japan and China have similar planning system, as .showing (Fig.l) when there is plural acts that support national territory plan, the relation between plans and a role of each ministry should be made clear.(2)Vertical relation of plans: China and Korea has comparatively clear vertical relation between plans because they both have strong nature to transmit planning policy from top to bottom. However, an each plan of China was strictly bound to administrative unit and in Japan the role of semi-wide area planning is relatively weak. In the future, setting wide-area planning beyond single administrative unit would be possible to connect effectively the higher plans and the lower plans,according to economic, cultural and natural conditions.(3)Spatial area covered by national territory plan: In Japan the area covered by a certain comprehensive plan is actually limited to city planning area (CPA). Spatial planning does not cover almost non-CPA area; therefore comprehensive environmental or landscape improvement from a viewpoint of multi-directions is possibly difficult.(4)Weight of planning: We might say Japan puts the weight of planning to urban area, and Korea, theoretically, puts the weight to both urban and rural area equally. In China, nowadays the weight of planning is particularly on tile urban area with high economic growth. However it is important tasks to establish non-urban areas comprehensive planning in three countries, in other words, to conserve their own nature, culture and landscapes of non-urban area, strengthening local identity and originality. Through this study, we can refer that there is a big relation between the size of national territory and a character of the planning system. Wider national territory has more multistage administrative unit, and the planning phase also tends to become more complicated. If we assumed the Eastern Asian Spatial Planning as one community, the subjects would be wider regional tasks like nature/environment/biosphere/cultural area conservation, economical and social interchange, and strategic traffic route,etc. Considering these themes, it will be needed in the future to collect information about Eastern Asia to study possibility of a wide area zoning across the country borders.4结论：（1）行为和国家相关部委主管领土计划：能够说，日本和中国有类似计划体系。如（Fig.l）显示，当有计划支持国家领土复数行为，每个部门关系和作用应该明确。 （2）垂直关系计划：中国和韩国之间计划纵向关系比较明确，因为它们全部含有很强性质，计划政策从上倒下贯穿。不过，在中国每个行政部门计划被严格约束而在日本计划作用相对较弱。以后，依据经济、文化和自然条件有可能设置超出单一行政单元计划来有效地连靠近远计划。