摘要：规划系统中的多种空间规划可以在不同的机构组织下具有不同的共存方式。拥有像中国这样高度集中的政府，同时主导着多项国家级计划的现象有其独特的特点。许多文献都强调政府机构之间缺乏协调，然而，本研究发现，中国规划体系的现行构成深刻地反映了中央与地方政府之间的关系。本文首先考察了中国政治制度的特点，简要回顾了“集中 - 分权 - 选择性集中化”的迭代过程，表明了空间规划的兴衰正是地方政府的行政方式。特别是自20世纪90年代以来，中央政府已经从地方一级增加了收入，这导致地方政府更多地依靠出售土地来快速赚钱。但随着城市扩张的加速，国家通过国家主要功能规划和国家土地利用规划主张对地方发展的控制，严重阻碍了各级空间规划的协调。因此，本研究认为，中国的空间规划改革不仅要求产生综合信息平台和技术标准，更重要的是要建立中央与地方政府之间的新关系。最后，对中央当局提出了一些建议：减少规划审查制度的制约因素，并重新平衡了地方政府在规划事务上的责任和公共财政。
关键词：中央与地方的关系，空间规划系统，权力下放，土地开发控制
Abstract: A multiplicity of spatial plans in a planning system can have different ways of co-existing under different institutional organizations. Having a highly centralized government like China, the phenomenon of a multitude of national-level plans dominating at the same time has its own unique characteristics. Much literature emphasizes only the lacking of coordination between governmental institutes. However, this research finds that the current constitution of the Chinese planning system profoundly reflects the relations between central and local governments. This paper first examines the characteristics of the Chinese political system, briefly reviewing the iterative process of “centralization-decentralization-selective centralization”, showing the rise and fall of spatial planning as an administrative tool of local governments. Especially since the 1990s, the central government has raised revenue from the local level, which leads to local governments depending more on selling land for quick money. But as the urban expansion accelerates, the state asserts its control on local development by the National Main function Plan and National Land-use Plan, which seriously impedes the coordination of spatial plans at different levels. Therefore, this study argues that spatial planning reform in China requires not only generating integrated information platforms and technical standards, but more importantly, establishing new relations between central and local government. In the end, some suggestions are made on central authorities reducing the constraints of a planning censorship system and rebalancing the responsibility and the public finance of local government on planning matters.
Key: Central-local Relations, Spatial Planning System, Decentralization, Land Development Control
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