【作者】 唐兰；

【导师】 运迎霞；

【作者基本信息】 天津大学 ， 城市规划与设计， 2012， 博士

【摘要】 城市总体规划和土地利用总体规划（简称“两规”）均是以用地配置为核心的法定规划，在经济建设与可持续发展战略中起着“导航”作用。现行体制下，“两规”分别由规划部门与国土部门管理，由于法律依据、编制体系、编制方法和管理模式等方面的差异，造成“两规”在用地规模和用地布局等关键问题上出现分歧，削弱了规划的权威性和严肃性，也为城市建设与土地管理工作带来困扰，以致违规预支用地指标，造成近郊农用地保护乏力等许多问题。必须转变规划方式，将市场性的城市总体规划与计划性的土地利用总体规划衔接起来，协调好城市发展与资源保护的关系，为城乡统筹发展提供科学有效的用地管控依据。本文回顾“两规”的发展历程，分析不同时期“两规”衔接问题的变化及其发展趋势，特别从指导思想、规划体系、编制方法、管理模式等多个方面，分析“两规”衔接中的突出障碍。通过梳理国内不同地区“两规”衔接实践，总结规划编制与管理的经验，提出需要进一步研究的方向。第一，在规划编制体系的衔接上，借鉴国外战略空间规划衔接经验，指出我国规划编制体系中制约“两规”衔接的问题，并提出设立高层次战略规划来统筹“两规”的措施。第二，在规划编制方法的衔接上，研究了“两规”分工协作策略及重点内容编制方法的改进措施，深入探讨规划基础数据、用地规模和空间布局的衔接方法。其中，“两规”编制基础数据衔接方面，综合分析基础资料统计口径、用地分类标准、规划编制范围和规划期限等方面的衔接途径；“两规”用地规模衔接方面，结合天津市规划编制案例，提出“两规”衔接的多目标用地预测方法，提高用地规模预测的科学性和适应性；“两规”空间布局衔接方面，统一两者空间管制措施，并基于弹性规划的思想，优化建设用地布局，构建基于环境影响的建设用地分区方法。第三，在规划管理模式的衔接上，提出“两规一图”规划管理平台的建设思路，协调“两规”成果表达方式、统一基础信息平台、促进规划实施管理互动。与国内其他相关成果比较，本文的创新点主要体现在三个方面：第一，基于协同论的思想，探讨规划衔接的方法和措施。提出构建开放的规划编制及管理系统，打破相关部门各自为阵的局面，使系统中各个组成部分达到了协同运转，从而实现“两规”的协调；第二，基于弹性规划的思想，改进“两规”编制方法，设置具有弹性的规划编制内容，提高人口和用地规模预测的适应性，探讨建设用地弹性分区方法，从而促进“两规”用地规模及空间布局的衔接；第三，基于规划刚性管控要求，设想了“两规一图”规划管理模式，通过规划整合平台，有助于“两规”基础数据、规划成果、实施管理的衔接。更多还原

【Abstract】 Both Overall Urban Planning and Comprehensive Land Use Planning（hereafterreferred as―Two Planning‖）are the statutory planning of which take land allocationas core, and have a―navigation‖role in the strategy of both economic constructionand sustainable development. Under the current system,―Two Planning‖areauthorized by the Urban Planning Department and the State Land Departmentrespectively, but there are bifurcation between them in critical issues, such as landscale used, land composition and so on, due to differences in the legal basis,compilation system, compilation methodology and authorization mode etc., so that theauthority and seriousness of―Two Planning‖have been weakened, and also confusethe urban construction and land management, as well as result in the violation toadvance land target used, and also is incompetent for protecting suburb cultivated land.So as to provide the scientific effective basis of land administration for urban andrural harmonious development, it is necessary to change the existing planningapproach, that is to link up the planned Land Use Planning and in market based UrbanPlanning, and coordinate the urban development and resource protection.The study in this paper has reviewed the development experience of―Two Planning‖,and analyses the variation and developing trend on the issues linking up―TwoPlanning‖during diffident periods, especially linking up outstanding obstaclesbetween―Two Planning‖, included guiding ideology, planning system, compilationmethodology and management mode, etc.. Combing through the practice cases oflinking up―Two Planning‖from domestic various areas, the experiences of planningcompilation management are summarized, and the further research direction has beenputted forward.Firstly, at the linkup of planning compilation systems, learn from the experience ofinternational strategic spatial planning, this study paper has pointed out the problemsexisting in the domestic compilation system that have restricted the linkup of―TwoPlanning‖, so that puts forward the measures in which the high-level strategicplanning should be set up to orchestrate―Two Planning‖. Secondly, at the aspect oflinking up planning compilation approach, the paper has researched the division ofwork and collaboration strategies of―Two Planning‖, as well as improving measuresfor the compiling approaches of emphases content, and deeply discuss the linkupapproaches to basic planning data, land scale used and spatial distribution. At the linkup aspect of basic compilation data of―Two Planning‖, the paper syntheticallyanalyzes the linkup paths of the statistical definition of basic datum, the classificationstandards of land used, the planning compilation range and planning period, etc. Atthe linkup aspect of land scale used in―Two Planning‖, combined with the study caseof―Two Planning‖compilation for Tianjin, that the multi-object prediction approachto link up―Two Planning‖has been employed to enhance scientific adaptability offorecasting land scale used. At the linkup aspect of the spatial distribution in―TwoPlanning‖, two spatial control measures has been unified to optimizes the distributionof constructing land based on the flexible planning ideology, and to build the zoningmethodology of constructing land concerned the environment influence. Thirdly, atthe linkup aspect of planning management mode, the paper has putted forward the anew ideal of the planning management platform—―Two Planning and One map‖tocoordinates the expression manner of studying results of―Two Planning‖, and tounify the basic information platform, as well as promoting the interaction of planningimplementing management.Comparing with other correlative domestic researched achievements, the innovativepoints of the study paper are embodied in three aspects as follows. First, the study hasdeeply researched the linkup approach and measure for―Two Planning‖based on theideology of collaborative theory. In order to achieve the coordination of the―TwoPlanning‖, It puts forward to build an open system of planning compilation andmanagement, and to break down―each goes his own way‖situation among correlativedepartments, so that the various components of the system can be achieved acollaborative operation. Second, based on the flexible planning ideology to improvethe compilation approaches of―Two Planning‖, and sets up the planning compilationcontent with flexibility, meanwhile to enhance the adaptability of forecastingpopulation and land scale used, and investigates the flexible zoning approaches forconstructing land, so as to promote the linkup land scale used and spatial distributionof―Two Planning‖. Third, based on the rigidity requirement of management andcontrol of―Two Planning‖, the study has conceived the planning managementplatform mode–―Two Planning and One map‖to contribute linking up overall basicdata, planning achievements and management implementation via planningintegration platform.更多还原