治理能力现代化导向下的控规审批制度改革研究* ——基于广州市城市规划委员会的探索与实践
A Study on the Reform of Regulatory Plan Examination and Approval System under the Background of Modernization of Governance Capacity: Based on the Exploration and Practice of Guangzhou Urban Planning Committee
刘 涛
广州市城市规划勘测设计研究院 主创规划师，硕士
摘要: 从城市规划委员会的视角，以广州市为例探讨审批制度改革。广州市城市规划委员会改革的主线一直围绕优化内设机构、审批事权下放、加强科学性论证等制度供给端开展，但在需求端仍然存在刚性和弹性矛盾、整体与局部利益矛盾、市区事权边界不清晰和联动不足等结构性问题。基于实现规划治理体系和治理能力现代化的目标，提出构建“事权清晰、放管结合、科学高效”的改革思路，并提出4方面改革建议：一是优化控规编制技术，增加空间层级，明确控规调整和豁免程序的边界；二是依托空间信息管理平台，建立以片区为基本单元的开发容量平衡机制；三是针对未下放审批权限的区，合理划分市区事权，收放结合；四是针对已下放审批权限的区，加强市级层面在事前事中事后的全过程指导和参与。
Abstract: From the perspective of the urban planning committee, this paper takes Guangzhou as an example to discuss the reform of regulatory plan examination and approval system. The main lines of the reform of Guangzhou Urban Planning Committee have always been around the supply side of the system, such as optimizing the internal institutions, decentralizing the authority of examination and approval, and strengthening scientific demonstration. However, there are still structural problems on the demand side, such as the contradiction between rigidity and elasticity, the contradiction between the overall and local interests, the unclear boundary of the authority, and the insufficient linkage between municipal and district governments. Based on the goal of realizing the modernization of planning governance system and governance capacity, this paper puts forward the reform ideas of clear authorities and responsibilities, combination of authority delegation and regulation, and being scientific and efficient. It also puts forward four reform suggestions. The first is to optimize the regulatory plan technology, increase the spatial levels, and define the boundaries of regulatory plan adjustment and exemption procedures. The second is to establish the balance mechanism of development capacity of area based on the spatial information management platform. The third is to reasonably allocate the development capacity of municipal and district governments for districts without delegated approval authority. The fourth is to strengthen guidance and participation in the whole process of regulatory plan adjustment for districts with delegated approval authority.
关键词：控规审批改革；城市规划委员会；治理能力现代化
Keyword: regulatory plan examination and approval reform; urban planning committee; modernization of governance capacity
中图分类号：TU984
文献标识码: A
资金资助
自然资源部课题 “国土空间用途管制配套政策与管理机制研究”
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