都市圈国土空间规划编制研究* ——基于《上海大都市圈空间协同规划》的实践探索

A Study on Territory Spatial Planning of Metropolitan Area: Based on Practice and Exploration of Spatial Cooperative Planning of Great Shanghai Metropolitan Area

熊 健
上海市城市规划设计研究院党委书记、副院长 上海大都市圈规划研究中心主任，正高级工程师

杜凤姣
上海市城市规划设计研究院城市规划一所 上海大都市圈规划研究中心，工程师，硕士

张振广
中国城市规划设计研究院上海分院研究室 上海大都市圈规划研究中心，高级工程师，硕士

马 璇
中国城市规划设计研究院上海分院研究室主任 上海大都市圈规划研究中心，高级城市规划师，硕士

屠启宇
上海社会科学院城市与人口发展研究所副所长 上海大都市圈规划研究中心副主任，研究员

孙 娟
清华大学建筑学院2019级创新领军工程博士研究生中国城市规划设计研究院上海分院院长，上海大都市圈规划研究中心副主任，教授级高级城市规划师

摘要: 基于国内外既有实践探索，重点探讨我国都市圈国土空间规划的定位和作用、空间范围界定、规划原则、编制重点和编制管理等核心问题，认为我国都市圈规划定位应以国土空间规划作为基本属性并兼顾发展规划，空间范围划定应综合考虑地理的邻近性、功能的关联性和行政的完整性，规划组织编制则强调上下结合和平等协商，技术思路重在建立开放平台、聚焦底线与协同，同时要充分考虑全国地区差异性，在规划编制管理方面突出因地制宜和分类管理。最后，对上海大都市圈空间协同规划的实践探索进行总结，主要包括认识其兼具“通勤圈+功能圈”的特殊性，形成的共识目标愿景并开展有限规划，在实施层面形成8大系统行动与5大空间板块行动，并推动建立共同编制、共同认定与共同实施的空间协同机制。

Abstract: Building upon existing practical experience at home and abroad, the discussion will focus on core issues including the positioning and the role of metropolitan area plans, spatial definition of metropolitan areas, and principles, priorities and management of metropolitan area planning. We propose that metropolitan area plans should be primarily territory spatial plans which incorporate attributes of development plans. The identification and definition of spatial boundaries of metropolitan areas should comprehensively consider geographical proximity, functional correlation and administrative integrity. The organization of planning processes should emphasize the integration of top-down and bottom-up approaches, and the principle of equality in negotiations. The technical approach should place emphasis on establishing an open platform, and focus on bottom lines and cooperation, while fully consider the geographical differences between regions. The planning management should adapt to local conditions and manage in a categorized approach. Finally, this paper summarizes the practical explorations in the spatial cooperative planning of Great Shanghai Metropolitan Area, including recognizing the "commuter zone + functional zone" dual-character of the Great Shanghai Metropolitan Area, drafting a plan with limited scope based on agreed goals and visions, devising eight systematic actions and five main spatial zones oriented towards implementation, and promoting the establishment of a spatial cooperation mechanism with joint-planning, joint-approval and joint-implementation.

关键词：都市圈；国土空间规划；编制重点；规划定位

Keyword: metropolitan area; territory spatial planning; compilation priorities; planning positioning

中图分类号：TU984

文献标识码: A

资金资助

2021年住房和城乡建设部研究开发项目 “全球城市区域的理论、方法及中国实践研究”

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