统一国土空间用途管制制度的思考

近年来,统一国土空间用途管制,已提升到前所未有的国家战略部署层面,是一项带有全局意义的极其重要的改革任务。在系统梳理1949年以来国土空间用途管制制度演变的基础上,重点总结中国以往国土空间用途管制的主要特点,结果发现：贯彻落实用途管制制度,关键是把握好规划编制、实施许可、监督管理三大环节,统筹陆域、海域两类国土空间,差别化管理建设与非建设两种活动。结合制度建设的前提,提出构建统一国土空间用途管制制度的建议：（1）建立统一的国土空间用途管制控制线体系;（2）构建丰富有效的国土空间用途管制手段体系;（3）确立统一明晰的国土空间用途管制监管体系;（4）完善国土空间用途管制的相关法律法规体系。

Thoughts on unifying the regulation of territorial space use

In recent years, the unification of territorial space use regulations has been upgraded to an unprecedented level of national strategic deployment, which is an extremely important reform task with overall significance. Based on the systematical review on the institutional evolution of territorial space use regulation since 1949, this paper puts an emphasis on summarizing the major features of previous territorial space use regulations in China. In general, we conclude that the key to implement territorial space use regulations is to control the three important aspects which consist of planning, licensing and supervision, to coordinate the utilization of continental space and ocean space and to discriminate the management of construction and non-construction purposes. On the premise of system construction, we propose four suggestions to institution on how to unify the territorial space use regulations: (1) Establishing a unified control line system for territorial space use regulations at the planning level; (2) Building an abundant and effective measure system for territorial space use regulations; (3) Constructing a unified and explicit regulatory system for territorial space use regulations at the supervision level; (4) Improving the legal system to help territorial space use governance at the support level.