乔艺波 罗震东

Qiao Yibo, Luo Zhendong

关键词：荷兰；空间规划；环境规划；规划权；流变

Keywords：Dutch; Spatial Planning; Environmental Planning; Planning Power; Evolution

摘要：

荷兰空间规划具有分权协商以达成共识的制度基因。合理的规划权划分是荷兰空间规划能够形塑良好空间品质的必要制度基础。相似的强政府干预和紧土地资源约束使得荷兰空间规划体系中规划权的划分对于中国国土空间规划制度设计具有较强的借鉴意义。从荷兰各级政府享有的规划权来看，在空间规划体系萌芽和形成期（1902—1964年），国家规划和省区域规划对市镇规划纸面上享有法定的强制性权力，但实践中不具可操作性；在发展与繁荣期（1965—2007年），上位规划仅发挥指引作用，实质上充分放权给市镇政府；在过渡与转型期（2008年至今），一方面在财务问题上放权给市镇政府，一方面加强国家和省的空间干预能力。总体上，呈现出各级政府规划权力动态调整、规划内容日益广泛、规划法律大体连续的特点。荷兰空间规划实践对中国的启示在于要合理划分各级政府的规划权，让地方政府享有相对自主的规划权限。 

Abstract：

Dutch spatial planning has the institutional genes of decentralized consultation to reach consensus. Reasonable division of planning power is the necessary institutional basis for Dutch spatial planning to shape good spatial quality. The similar characteristics of strong government intervention and tight land resource constraints make the division of planning power in the Dutch spatial planning system important for the institutional design of Chinese national spatial planning. From the perspective of the planning power enjoyed by all levels of government in the Netherlands, national planning and provincial planning have statutory mandatory powers on municipal planning on paper, but in practice it is not operable in the beginning and formation period of the spatial planning system (1902-1964). In the period of development and prosperity (1965-2007), the upper-level planning only played a guiding role. In essence, it fully delegated power to the municipal government, and then in the transition and transformation period (2008 to present). On the one hand, financial power are decentralized to the municipal government; on the other hand, the national and provincial spatial intervention capabilities are also reinforced. Overall, it reflects the characteristics of continuous changes in planning powers at all levels of government, increasingly extensive planning content, and generally continuous planning laws. The inspiration of the Dutch spatial planning practice to China is to rationally divide the planning power of governments at all levels, so that local governments can enjoy autonomous planning power. 

乔艺波，荷兰乌得勒支大学，博士研究生。y.qiao@uu.nl

罗震东，南京大学建筑与城市规划学院，教授；南京大学空间规划研究中心执行主任；中国城市规划学会总体规划学术委员会委员。luozhendong@nju.edu.cn

• [1] FALUDI A, VAN DER VALK A J. Rule and order Dutch planning doctrine in the twentieth century[M]. Springer Science & Business Media, 2013.

  [2] 张书海, 冯长春, 刘长青. 荷兰空间规划体系及其新动向[J]. 国际城市规划, 2014, 29(5): 89-94.

  [3] 周静, 沈迟. 荷兰空间规划体系的改革及启示[J]. 国际城市规划, 2017, 32(3): 113-121. DOI: 10.22217/upi.2016.345.

  [4] 牛赓, 翟国方, 朱碧瑶. 荷兰的空间规划管理体系及其启示[J]. 现代城市研究, 2018(5): 39-44.

  [5] 胡宏, 彼得·德里森, 特吉奥·斯皮德 . 荷兰的绿色规划：空间规划与环境规划的整合[J]. 国际城市规划, 2013, 28(3): 18-21.

  [6] 张驰, 张京祥, 陈眉舞. 荷兰乡村地区规划演变历程与启示[J]. 国际城市规划, 2016(1): 81-86.

  [7] 曹哲静. 荷兰空间规划中水治理思路的转变与管理体系探究[J].国际城市规划, 2018, 33(6): 68-79. DOI: 10.22217/upi.2017.325.

  [8] 赵力. 论荷兰《空间规划法》规划制定权力的垂直分配与纠纷解决[J]. 国际城市规划, 2018, 33(4): 124-131. DOI: 10.22217/upi.2017.124.

  [9] 张京祥, 罗震东, 胡毅. 荷兰的绿色与可持续城乡规划[J]. 国际城市规划, 2013, 28(3): 1-3.

  [10] 乔艺波, 罗震东. 集权与分权的平衡——荷兰市镇空间规划的编制与实施[J]. 小城镇建设, 2020, 38(12): 21-27.

  [11] 道格拉斯·诺思. 制度、制度变迁与经济绩效[M].上海: 上海人民出版社, 2014.

  [12] ?ZDEMIR E, TASAN-KOK T. Planners’ role in accommodating citizen disagreement: the case of Dutch urban planning[J]. Urban studies, 2019, 56(4): 741-759.

  [13] 荷兰历史[EB/OL]. (2020-11-28)[2021-07-01]. https://zh.wikipedia.org/wi ki/%E8%8D%B7%E8%98%AD%E6%AD%B7%E5%8F%B2#%E5%85 %AB%E5%8D%81%E5%B9%B4%E6%88%98%E4%BA%89%E8%88%87%E7%83%8F%E7%89%B9%E5%88%97%E6%94%AF%E5%90%8C %E7%9B%9F.

  [14] NEEDHAM B. The new Dutch spatial planning act: continuity and change in the way in which the Dutch regulate the practice of spatial planning[J]. Planning practice & research, 2005, 20(3): 327-340.

  [15] VAN DER VALK A. The Dutch planning experience[J]. Landscape and urban planning, 2002, 58(2/4): 201-210.

  [16] TOONEN T A. The unitary state as a system of co‐governance: the case of the Netherlands[J]. Public administration, 1990, 68(3): 281-296.

  [17] MOKYR J. The industrial revolution and the Netherlands: why did it not happen?[J]. De Economist, 2000, 148(4): 503-520.

  [18] Woningwet 1902 [EB/OL]. [2021-07-01]. https://www.delpher.nl/nl/ boeken/view?identifier=MMSFUBA02:000007418:00006&query=Woning wet&page=1&maxperpage=50&sortfield=date&cql%5B%5D=%28title+all+ %22Woningwet%22%29&coll=boeken&rowid=2.

  [19] Woningwet 1921[EB/OL]. [2021-07-01]. https://www.delpher.nl/nl/ boeken/view?identifier=MMKB24:075965000:00007&cql%5B%5D=%28ti tle+all+%22Woningwet%22%29&query=Woningwet+1921&coll=boeken& maxperpage=50&sortfield=date&rowid=1.

  [20] De Woningwet Voorheen en Thans 1931[EB/OL]. [2021-07-01]. https:// www.delpher.nl/nl/boeken/view?identifier=MMKB05:000033823:00001&cql%5B%5D=%28title+all+%22Woningwet%22%29&query=De+Woningwet+Voorheen+en+Thans&coll=boeken&maxperpage=50 &sortfield=date&rowid=12.

  [21] MICHEELS S. 15 mei 1941: De oprichting van de Rijksdienst voor het Nationale Plan[M]. Verkenningen in Planning Theorie en Onderwijs 19, 1978.

  [22] RZING H. Planning system and landscape: a Dutch example[J]. Landscape research, 2004, 29(4): 357-369.

  [23] 巴里·尼德汉姆. 荷兰土地使用规划[M]. 罗震东, 译. 南京: 东南大学出版社, 2014.

  [24] BUITELAAR E, SOREL N. Between the rule of law and the quest for control: legal certainty in the Dutch planning system[J]. Land use policy, 2010, 27(3): 983-989.

  [25] Inpassingsplan hoofdaardgastransportleiding Bornerbroek-Duitsland[EB/OL]. [2022-04-07]. https://www.planviewer.nl/imro/files/NL.IMRO.0000.ripBornerbroekEpe-0401/t_NL.IMRO.0000.ripBornerbroekEpe-0401.pdf.

  [26] RHEITER E. Uitnodigingsplanologie en de Omgevingswet. Een ambacht en een nieuwe cultuur[D]. Radboud Universiteit Nijmegen, 2016.

  [27] Programmaplan Omgevingswet 2017-2020[EB/OL]. [2021-07-01]. https:// openarchivaris.nl/blob/b0/a2/de16ff287b227d8d059749d9c0f9.pdf.

  [28] Plan van aanpak‘Omgevingsvisie Zwolle[EB/OL]. [2021-07-01]. https:// www.zwolle.nl/sites/default/files/bijlage-1-plan-van-aanpak-omgevingsvisie-1.pdf.

  [29] KORTHALS ALTES W K. Planning reform beyond planning: the debate on an integrated Environment and Planning Act in the Netherlands[J]. Planning practice & research, 2016, 31(4): 420-434.

  [30] Environment and Planning Act–Explanatory Memorandum[EB/OL]. [2021-07-01]. https://www.government.nl/documents/reports/2017/02/28/ environment-and-planning-act-%E2%80%93-explanatory-memorandum.

  [31] Omgevingswet[EB/OL]. [2022-04-07]. https://www.rijksoverheid.nl/ onderwerpen/omgevingswet.

  [32] 梁鹤年. 旧概念与新环境——以人为本的城镇化[M]. 北京: 生活·读书·新知三联书店, 2016.

  [33] 乔艺波, 罗震东. 反驳与反思：城乡规划中的“科学”辨析——基于语言哲学的视角[J]. 城市发展研究, 2020, 27(9): 26-32.

  
  

• 收起