SpatialPlanningSystemofNationalTerritoryinJapan，ChinaandKorea日本、中國和韓國國土空間計劃體系KyungrockYE,Jun-huaZHANG,TakeshiKINOSHITA,Xing-yanWANGAbstract:ThisstudyconductedthenationalterritoryplanningsystemofJapan,ChinaandKorea,onapremisetodiscusspossibilityofintegratedspatialplanningofEasternAsia.Thepurposeofthisstudyistoarrangemajorspatialplansofthreecountriesaccordingtoclassificationofurbanandnon-urbanarea,andtoclarifyingroleofeachspatialplan.。文摘:本研究是在進行中國、日本、韓國國土計劃體系前提下,探討整個亞洲東部綜合空間計劃可能性。本研究目標是依據(jù)城市區(qū)域和非城市區(qū)域分類，明確大空間計劃下三個國家在計劃中所飾演角色。Asaresult,Korea,thesmallestcountryamongthreecountries,hasonesystemonlanduse,developmentandconservation,consideringwholenationalterritorytobeonecityplanningarea,andaroleandrelationofeachspatialplaniscomparativelyclear.Ontheotherhand,China,thelargestcountryamongthreecountries,althougharoleandrelationofeachspatialplanareclearinurbanarea,ageneralrecognitionfornecessityofnon-urbanareaplanningisweak.IncaseofJapan,thecharacteristicsthatthespatialplanningsystemisconsistedonthedivisionintourbanareaandnon-urbanarea,isverysimilartoChina,andthereishardlyrelationbetweenthesetwokindsofspatialplanning.最終,作為最小國家韓國,已擁有一個針對土地使用、發(fā)展和保護體系,它把整個國家領(lǐng)土是一個城市計劃區(qū)考慮，每個空間計劃角色和關(guān)系較為清楚。其次,作為最大國家中國,盡管市區(qū)空間計劃是很明確，但大家對非城市空間計劃重視程度全部很微弱。在日本，空間計劃系統(tǒng)對城市區(qū)域和非城市地域劃分標準跟中國是很相同,這兩種類型空間計劃幾乎沒有肯定關(guān)系。Keywords:Nationalterritoryplan;Japan;China;Korea;Spatialplanning;EasternAsiaCommunity.關(guān)鍵詞:國土計劃;日本、中國、韓國、空間計劃、東亞共同體。RecentlyitisfrequentlydiscussedontheEasternAsiaCommunity.Thisisstillmainlyfocusedontheeconomy,butinenvironmentalaspectwealsohavesomecommonseriousproblems,e.g.sustainabledevelopment,bio-diversity,outstandinglandscape/natureconservation,balanceddevelopmentoftownandcountry,culturalassetsconservation/utilizationandseveralenvironmentalproblems.Inordertosettlethesesubjects,itisimportantnotonlytochallengebyeachcountrybutalsotoprepareacommonframeworkforcomprehensivespatialplanningcoveringwholeeasternAsia..最近東亞共同體常常被討論，關(guān)鍵關(guān)注仍然是經(jīng)濟問題,但在環(huán)境保護方面我們也有部分常見嚴重問題需要處理,如可連續(xù)發(fā)展、生物多樣性、優(yōu)異景觀、自然保護、城鎮(zhèn)協(xié)調(diào)發(fā)展、文化遺產(chǎn)保護、環(huán)境問題等。處理這些問題,關(guān)鍵不僅是對每個國家挑戰(zhàn),而是需要準備一個常見全方面覆蓋整個亞洲空間計劃框架。ThisstudywasdonetoclarifythesimilaritiesanddifferencesofnationalterritoryplanningsystemofJapan,ChinaandKoreaasafirststeptodiscussonthesubjectsandpossibilitiesofcomprehensiveEasternAsianspatialplanning.UntilnowthenationalterritoryplanningsystemofJapanandKoreahavealreadybeenstudied,butthecomparativestudybetweenthreecountriesincludingChinafromtheviewpointofspatialplanninghasneverseenbefore.Weusedmainlyrelatedliteraturesonplanningsystemandgovernment'sofficialwebsitesofeachcountrytoclarifythepurposesofthisstudy.Andweclassifiedeachcountry'smajorspatialplansintofourcategories,national,regional,urbanareaandnon-urbanarea,anddiscussedontheverticalandhorizontalrelationbetweenthem.本研究之目標：第一步是明確日本、中國和韓國國土計劃體系異同,討論綜合東亞空間計劃課題和可能性。迄今為止,日本和韓國國土計劃體系已經(jīng)進行了比較研究階段,但從空間計劃角度對三個國家比較研究還未進行。我們關(guān)鍵在每一個國家計劃系統(tǒng)相關(guān)文件、政府官方網(wǎng)站上說明了本篇研究目標。我們根據(jù)整個大空間計劃把每個國家分為國家、地域、城市區(qū)域和非城市區(qū)域四類,討論垂直和水平關(guān)系。1NationalTerritoryPlanningSystemofJapanTheComprehensiveNationalDevelopmentAct(1950),LandUsePlanningAct(1974)andCityPlanningAct(1968)supportJapanesemajorspatialplanning(Table1).TheseareallunderthejurisdictionoftheMinistryofLand,infrastructureandTransport.TheCNDPprovidestong-rangevisionsonnation-widelanduse,developmentandconservation,socialoverheadcapital,andatrafficpolicy.Accordingthisplan,theCPDPandMLParetobeprepared.ThePlansprovidedbyLandUsePlanningActincludesNLPandPLPontheperspectiveofeffectivenationallanduseandLUMPthatclassifiedprefecturallanduseintofiveareas(town,agriculture,forest,naturalparkandnaturalconservationarea).Fig.1showsthattherearemaintwospatialplansbytwoactsatnationalandregionallevel,buttherelationandarolesharingbetweentheactsandplans.Representativeplansofurbanareaandnon-urbanareaaretheMLPbyLandUsePlanningActandtheCPbyCityPlanningAct,buttherelationbetweenthetwoisnotclearandactuallytheonlyCPplaysakeyroletocontrollanduse.itisclearthattheJapanesenationalterritoryplanningisdividedintoNLPandCPandtheroleofregionalplanningisrelativelysmall.Thereforetheareathatiscloselycoveredbymainthreeactsisonly'cityplanningarea',theothernon-urbanareaisdependedonotherrelatedacts(Fig.1).TheareaclassificationbyLUMPsupportscompetentministriesandacts,andseparateplansareappliedtoeacharea.Inotherwords,onemaysaythattheJapanesenationalterritoryplanningstressestheurbanareas'plansandinnon-urbanareasthereisnocomprehensiveplanthatunifiestherelatedplans(Fig.1)andaframe/roleofregionalplanningisrelativelyweak.一、日本國土計劃系統(tǒng)綜合國家發(fā)展行動(1950年)、土地利用總體計劃(1974年)和城市計劃條例(1968)全部支持日本關(guān)鍵空間計劃(表1)。這些全部是其管轄下土地、基礎(chǔ)設(shè)施、運輸。CNDP提供在全國土地利用、保護和發(fā)展、社會資本,交通政策概念計劃。依據(jù)該計劃,CPDP和MLP已經(jīng)開始準備。這個能提供土地利用總體計劃計劃包含對國家土地利用分類PLP和NLP和對縣級土地利用分成五類(鎮(zhèn)、農(nóng)、林、天然公園和自然保護區(qū))LUMP。圖1顯示了兩個在國家和地域水平上關(guān)鍵空間計劃行為,但這種關(guān)系和角色被行為和計劃分享，市區(qū)和非市區(qū)域代表計劃是由土地利用總體計劃MLP和城市計劃CP,但二者之間關(guān)系尚不清楚,其實只有CP飾演著關(guān)鍵角色來控制土地使用。很顯著,日本國土計劃分為NLP和CP，而區(qū)域計劃影響是較小。所以,市區(qū)關(guān)鍵由三個行為控制,而其它非市區(qū)是依靠其它相關(guān)行為。LUMP對這個地域分類支持主管部門和行為,并單獨應(yīng)用于各區(qū)域計劃中。換句話說,日本國土計劃強調(diào)城市地域計劃和非地域并沒有全方面結(jié)合相關(guān)計劃,區(qū)域計劃還相對微弱。2.NationalTerritoryPlanningSystemofChinaTheLandManagementAct(1986),CityPlanningAct(1989),andtheVillageandCountryPlanningRegulations(1993)supportChinesemajorspatialplanning.ThecompetentministriesareclassifiedintotheMinistryofLandandResources,theMinistryofConstruction,andtheNationalDevelopmentandReformCommission.UndertheLandManagementActtheadministrativeauthorities(upperlevelofprefecture)preparetheCNLUPtoclassifythefuturelanduseandcontrol,toregulatenetvolumeofconstructionsite,andtoprotectfarmlands.UndertheCityPlanningAct,theNTCPprovidesalong-rangehierarchyofcities'populationsizeandcityplanningareainthewholenationalterritoryfromthecomprehensivestrategicviewpointofeconomicalandsocialdevelopmentinharmonywithresourcesandecologicalenvironment.TheCPisconstitutedwithComP(indicatesthefuturedevelopmentdirectionandlanduseofadministrativeunitsupperlevelofprefecture),DP(whichispreparedinthedistrictarea),andDeP(providesotherdetailitems).TheVCPprovidesvillageandcountry'sdevelopmentdirectionandplacementplanofproductionandlifefacilitiessuchastransport,disasterprevention,commerceandgreening,etc.,enhancinglocalidentity.TheRPisawideareaplanningofaneconomiccommunitycoveringpluraladministrativeunitstoharmonizeeconomicaldevelopmentandresourcesmanagementlikeas'TheYangtzeRiverDeltaAreaPlan'.Thisplanhaspossibilitytoplayaroleofwidearea(theoreticallywholenationalarea)adjustmentbeyondawallbetweenadministrativeareastargetingaplanofcitysize,transportnetworking,utilization,developmentandconservationofresources,etc.,butitissaidthepowerandmanagementbaseasaspatialplanarerelativelyweak。BythewayintheletterofeachactitisprescribedthattheVCPhastoadjustitselftoCPandCLUP,andtheCFhastoadjustitselftotheCLUPandRP,butactuallyfalsesettinghasoccurredfrequentlybecauseofadifficultiesofplanningadjustmentbetweendifferentministriesandunclearshareoftherolebetweentheseplans.Ontheotherhand,theadministrativeauthoritiesupperlevelofprefecturehasaresponsibilitytoprepareeachplan,thusitissaidthatthereismuchrepetitionofaplan，however,thealmostwholenationalterritory(bothurbanareasandnon-urbanareas)iscloselycoveredbytheseCPandVCP(Table1).Asaresult,inthenationalterritory.planningtherearesimilarplanningconceptsasmuchasthenumberofcompetentministries,possibilitytobecomearepetitionplanishigh.Thisplanningsystemmakecoveringbothtownandcountryareahasalreadybeenestablished,buteachplanistendtobeboundtoanadministrativeauthority,thereforeageneralideasuchasRPisneedtospread,thatcanadjustthemattersinwideareacoveringsomeprovincesandinmediumareacoveringsomecitiesandprefectures.二、中國國土計劃體系土地管理行為(1986)、城市計劃條例(1989)、村莊和國家計劃法規(guī)(1993)支持中國關(guān)鍵空間計劃。主管部門分為國土資源部、建設(shè)部、國家發(fā)展和改革委員會。依據(jù)土地管理法行政當(dāng)局（縣上級）擬訂CNLUP分類未來土地利用和控制、規(guī)范施工現(xiàn)場凈體積、保護農(nóng)田。依據(jù)城市計劃法，NTCP提供了城市遠期層次人口規(guī)模,從整個城市綜合經(jīng)濟、社會和資源和生態(tài)環(huán)境協(xié)調(diào)發(fā)展戰(zhàn)略高度計劃國土面積。CP是由ComP（指出以后發(fā)展方向和土地使用單位行政上級縣），DP（這是該區(qū)面積編寫），和DEP（提供其它細節(jié)項目）。VCP提供鄉(xiāng)村和國家發(fā)展方向和安置計劃生產(chǎn)和生活設(shè)施，如交通，災(zāi)難預(yù)防，商業(yè)和綠化等，加強地方認同。RP是一個涵蓋了經(jīng)濟社會廣泛多元行政區(qū)劃區(qū)計劃，協(xié)調(diào)經(jīng)濟發(fā)展和資源管理，就仿佛'長江三角洲地域計劃'。這個計劃可能性，以發(fā)揮廣域（理論上整個國民經(jīng)濟領(lǐng)域中作用）超出目標之間城市規(guī)模，交通網(wǎng)絡(luò)，利用、開發(fā)和資源保護等計劃調(diào)整行政區(qū)域，但作為一個空間計劃，力度和管理基礎(chǔ)相對微弱。另外，每一個字母方法行為是受到要求，VCP必需調(diào)整自己CP和CLUP，而且CF要調(diào)整自己CLUP和RP，但實際上錯誤常常發(fā)生，因為常常計劃困難調(diào)整各部委之間和它們之間共享計劃作用尚不清楚。其次，行政當(dāng)局縣上層有責(zé)任準備每個計劃，所以有些人說，有很多反復(fù)計劃，不過，幾乎整個國家領(lǐng)土（包含城市地域和非城市地域）親密受這些CP和VCP影響（表1）。所以，在國家國土計劃上有類似計劃概念跟主管部門數(shù)目一樣多，從而反復(fù)計劃也變得很高。這個系統(tǒng)使計劃覆蓋城市和農(nóng)村地域全部已經(jīng)建立，但每個計劃往往被綁定到一個行政機關(guān)，所以，一個總體思緒如RP是發(fā)揚，能夠調(diào)整包含部分省在內(nèi)大區(qū)域，和包含一個區(qū)域及市區(qū)域。3NationalTerritoryPlanningSystemofKoreaTheKoreansystemissimplerthantheJapaneseandtheChineseone,reflectingsmallnationalterritory.MajorspatialplanningrelatedactsaretheFrameworkActofNationalTerritory()andtheActonPlanningandUseofNationalTerritory()，andthecompetentauthorityistheMinistryofConstructionandTransportonly.Plansprovidedbythesetwoactscompletelyshareinresponsibility.TheCNTPprovidesfundamentalandlong-rangepoliciesonthenation/region/municipality'sdevelopmentdirectionandfutureimage,utilizationandmanagementoflandresources,disasterpreventionandenvironmentalconservationandimprovement,etc.TheRP(providedbytheActonPlanningandUseofNationalTerritory),whichiscomprehensiveplancoveringwidearea(thatissetifnecessary)toextendtoseveralcitiesandcounties,aimstoshareinresponsibilityofurbanfunctionsatwidescale,openspaceplanning,environmentalplanning,andlandscapeplanning.TheCP(coveringurbanareas)andtheCoP(coveringnon-urbanofareas)arethelong-rangecomprehensivespatialplanning,andbothplansconsistofamasterplanandamanagementplan.TheCMPandCOMPprovidedirectionandaimsoflanduse,developmentandconservationandtheCMaFandtheCoMaPconductamanagementofthem.ConsistencybetweenplansishighbecauseofaStrlcttopandbottomrelation.TherelationbetweentheCoPandotherrelatedacts(byotherministries)areclear,too.InadditiontheCPandCoPareinthehigherpositionofspatialplanningsystemincompetentadministrativearea,andtheyfunctionasanintegratedplanninginacityoracounty.AsasmallcountryKorea,toapplyingdifferentplanningsystemtotownsideandcountrysideratherbroughtanenvironmentorlandscapeimpoverishmentinnon-urbanareas,thusitbecamepossibletoapplytechniqueofcityplanningtoanon-urbanareaunderestablishmentofnewactsof.AsaresulttheKoreanplanningsystembecamesimplestructure,butthestrictrelationBetweenahigherplanandalowerplanmaybringstandardizationandstiffeningofplanning.thereforeitbecomebasicsubjectshowtosurpassthesimplewayofthinkingofcityplanningsystem,howtoapplyotherrelatedplansandlocalandnationalidentityintoplans,andhowtointegrate/useeffectivelyministries'viewpoints.三、韓國國土計劃體系韓國系統(tǒng)要比日本和中國簡單些，反應(yīng)了小國家領(lǐng)土。關(guān)鍵空間計劃相關(guān)行為，是國家領(lǐng)土（）和計劃和國家領(lǐng)土（），而主管機關(guān)僅僅是建筑部和交通運輸部。這兩個計劃所提供行為完全分擔(dān)責(zé)任。CNTP利用土地資源、預(yù)防災(zāi)難和環(huán)境保護和改善等，對國家、地域、直轄市發(fā)展方向和未來形象提供根本和長遠政策，RP（由計劃和使使用方法要求管理國土）是個全方面計劃，涵蓋廣泛區(qū)域（假如有必需即設(shè)置）擴大到好多個城市和縣，意在大規(guī)模地在城市功效分擔(dān)責(zé)任，開放空間計劃、環(huán)境計劃、景觀計劃。CP（包含市區(qū)）和COP（包含非地域城市）是長久提供全方面空間計劃，兩個計劃包含一個總體計劃和管理計劃.CMP和COMP提供指導(dǎo)和土地利用，開發(fā)和保護和CMaF和COMAP是她們目標進行管理。計劃之間一致性，就像頂部和底部關(guān)系。COP和其它部委關(guān)系是明確。另外，CP和CoP作為主管行政區(qū)域空間計劃體系較高位置對一個城市甚至國家進行綜合計劃。韓國作為一個小國，對城鎮(zhèn)和農(nóng)村采取不一樣計劃制度，以帶來非城市地域環(huán)境或景觀發(fā)展，所以它使得利用城市計劃下建立新行為非市區(qū)成為可能。所以，韓國計劃體制成為結(jié)構(gòu)簡單，但嚴格意義上，較高和較低計劃可能帶來標準化，所以基礎(chǔ)問題是怎樣超越了城市計劃體系，思索怎樣適用其它相關(guān)計劃和地方、國家計劃，和怎樣簡單方法整合、使用部委見解。4Conclusions(1)Actsandcompetentministriesrelatednationalterritoryplan:OnemaysaythatJapanandChinahavesimilarplanningsystem,as.showing(Fig.l)whenthereispluralactsthatsupportnationalterritoryplan,therelationbetweenplansandaroleofeachministryshouldbemadeclear.(2)Verticalrelationofplans:ChinaandKoreahascomparativelyclearverticalrelationbetweenplansbecausetheybothhavestrongnaturetotransmitplanningpolicyfromtoptobottom.However,aneachplanofChinawasstrictlyboundtoadministrativeunitandinJapantheroleofsemi-wideareaplanningisrelativelyweak.Inthefuture,settingwide-areaplanningbeyondsingleadministrativeunitwouldbepossibletoconnecteffectivelythehigherplansandthelowerplans,accordingtoeconomic,culturalandnaturalconditions.(3)Spatialareacoveredbynationalterritoryplan:InJapantheareacoveredbyacertaincomprehensiveplanisactuallylimitedtocityplanningarea(CPA).Spatialplanningdoesnotcoveralmostnon-CPAarea;thereforecomprehensiveenvironmentalorlandscapeimprovementfromaviewpointofmulti-directionsispossiblydifficult.(4)Weightofplanning:WemightsayJapanputstheweightofplanningtourbanarea,andKorea,theoretically,putstheweighttobothurbanandruralareaequally.InChina,nowadaystheweightofplanningisparticularlyontileurbanareawithhigheconomicgrowth.Howeveritisimportanttaskstoestablishnon-urbanarea'scomprehensiveplanninginthreecountries,inotherwords,toconservetheirownnature,cultureandlandscapesofnon-urbanarea,strengtheninglocalidentityandoriginality.Throughthisstudy,wecanreferthatthereisabigrelationbetweenthesizeofnationalterritoryandacharacteroftheplanningsystem.Widernationalterritoryhasmoremultista