The spatial governance system is an important part of the national governance system, which always serves the needs of national development and local practice at different stages. With the change of domestic and international situation and the deepening of reform and opening up, the objectives, logic and means of space governance need to be adjusted and improved with the times. Facing the new development stage of the " 15th Five-Year Plan, " how to implement the goal of Chinese-style modernization and promote the high-quality development of cities has become the direction of the reform of the spatial governance system.
To explore the context of the interaction between development planning and spatial governance since the reform and opening up, to study and judge the new trend of national economic and social development in the new era, to explore the strategies and requirements of the reform and innovation of land and space governance system and governance capacity in the development stage of the ' 15th Five-Year Plan ', and to give a better answer to the proposition of Chinese-style modernization.
1. Since the reform and opening up, the context of development planning and the focus of work have changed
① The Sixth Five-Year Plan to the Ninth Five-Year Plan ( 1981-2000 ) : Economic Transformation and Spatial Governance
The ' Sixth Five-Year Plan ' is the first five-year plan after the Third Plenary Session of the Eleventh Central Committee established economic construction as the key link. Focusing on new propositions such as economic system reform and market opening, the ' Sixth Five-Year Plan ' depicts the path of transition from planned economy to market economy, as well as the modes and requirements of mixed ownership. With the gradual advancement of the " Seventh Five-Year Plan, " " Eighth Five-Year Plan " and " Ninth Five-Year Plan, " the role of market economy in resource allocation has been significantly enhanced, and the situation of common development of multiple ownership under the leadership of public ownership has begun to take shape. During this period, the core task of spatial governance is to guide the rapid urbanization development of coastal developed areas on the one hand, and on the other hand, to put forward restrictive control conditions for market behavior. The specific practice includes the initial establishment of the urban planning system, the preparation of the overall urban planning represented by the four special zone cities, and the exploration of the controlled detailed planning represented by the planning of Shanghai Hongqiao Development Zone.These work has laid the necessary foundation for the subsequent urbanization.
② From the Tenth Five-Year Plan to the Twelfth Five-Year Plan ( 2001-2015 ) : new challenges of spatial governance in the context of globalization
At the beginning of the new century, China joined the World Trade Organization ( WTO ) and fully integrated into the global market. The " Tenth Five-Year Plan " accurately grasps China 's comparative advantage under the global economic network, and establishes the path of China 's leading industry development and gradual upgrading ; subsequently, the " Eleventh Five-Year Plan " and " Twelfth Five-Year Plan " emphasized the scientific concept of development and innovation-driven requirements in the path of industrial upgrading, and incorporated the quality of industrial development into the national economic and social development indicators. During this period, the core task of spatial governance is to promote rapid urbanization characterized by ' transfer of rural surplus labor, construction of export-oriented industrial parks, and large-scale real estate development '. In response to the competition among cities, the practice of urban strategic planning represented by Guangzhou strategy has emerged. In response to the needs of rapid urban expansion, the planning of new towns and new districts has been rolled out throughout the country. In response to the problems of environmental pollution, traffic congestion, high housing prices, and insufficient facilities caused by the disorderly growth of cities, urban planning responds to the requirements of the scientific development concept proposed by the central government, and gradually focuses on topics such as regional coordinated development, intensive and efficient use of land, protection of historical and cultural cities, and ecological city construction in practice.
③ The 13th Five-Year Plan to the 14th Five-Year Plan ( 2016-present ) : Spatial governance innovation under the new normal of economy
Under the new normal of economy, the economic growth mode at the cost of factor input and environmental damage in the past has been unsustainable. In addition to the drastic changes in international geopolitics, the national economy and social development are under unprecedented pressure of transformation and upgrading. Innovation drive, cultural inheritance and green development have become the key issues of China 's development under the new normal. The ' 13th Five-Year Plan ' first proposed the requirement of promoting high-quality economic development, while the ' 14th Five-Year Plan ' continued to deepen reform and opening up, emphasizing the effective improvement of quality and reasonable growth of quantity. During this period, the scope of spatial governance was expanded to the whole domain and all elements. The task of governance shifted from development-oriented to coordinated development and security, coordinated protection, restoration, development and utilization, and promoted the formation of a spatial development pattern with effective main function constraints and orderly land development. Taking the quantitative management and control of resources and environment as the main line, the governance model emphasizes top-down constraint index decomposition ; with strict adherence to the bottom line boundary as the main line, the governance model emphasizes the delineation of " three zones and three lines " under " double evaluation. "
2. The new trend of spatial governance and high-quality development in the new era
The total population reached its peak and structural changes. With the deep-seated changes in population structure and the continuous growth of middle-income groups, the main social contradictions have been transformed into the contradiction between the people 's growing needs for a better life and unbalanced and inadequate development. This change requires cities to provide more diversified and personalized space products to meet the people 's space supply-side reform from ' yes or no ' to ' good or not '.
Urbanization has entered the middle and late stages of rapid development. China 's urbanization rate has reached 66.16 %, and has entered a normal stage of slowing down. In the past, the focus on the urbanization process has gradually shifted to the focus on the quality of urbanization. On the one hand, it is necessary to solve the problems of housing, community governance, urban function improvement and so on. On the other hand, we should also find out the shortcomings that affect the competitiveness, carrying capacity and sustainable development of the city, narrow the gap between the urbanization of the household registration population and the urbanization of the permanent population, promote the urban renewal action, optimize the urban spatial layout, and improve the quality of urban functions.
The economic development model needs to be driven by innovation. The traditional troika power is weakened, the capitalization rate is slowed down, the demand for land expansion is reduced, and the land finance and real estate development model is unsustainable. It is urgent to explore a new model of innovation-driven capital cycle. New quality productivity takes scientific and technological innovation as the engine, new industry as the leading factor, industrial upgrading as the direction, and core competitiveness as the goal. It integrates digital technologies such as artificial intelligence and big data, and emphasizes the internal development quality. By integrating scientific and technological innovation resources, we will lead the development of strategic emerging industries and future industries, and promote high-quality economic development.
The tight constraints of resources and environment force the transformation of the model. The constraints of resources and environment are tightening, and the era of inefficient and extensive use of water and soil energy and mineral resources is over, which requires the gradual decoupling of economic and social development and resource and environment consumption. Promoting green and low-carbon development and achieving sustainable development goals have become an inevitable choice for space governance. By optimizing the allocation of resources, improving the efficiency of resource utilization and strengthening the protection of ecological environment, we will build a green, low-carbon, circular and sustainable development system.
Climate change requires building resilient and safe cities. Global warming leads to frequent extreme weather events, which puts forward higher requirements for the city 's ability to prevent and mitigate disasters. Spatial governance needs to fully consider climate change factors, strengthen urban infrastructure construction and disaster prevention and mitigation system construction, and improve the resilience and adaptability of cities. Through scientific planning, fine management and intelligent early warning, we can ensure that cities can respond quickly and effectively in the face of extreme weather.
3.The strategies of urban planning and high-quality economic development in the new era
In order to achieve the goal of land space governance in the ' 15th Five-Year Plan ', it is necessary to adjust and improve the existing governance strategies. Specifically, the following four suggestions are put forward.
Creating multiple spatial values : from creating a single economic value to the comprehensive improvement of multiple values such as culture, ecology, service, innovation and system. First, strengthen cultural heritage and promotion, and activate the vitality of the city with culture ; the second is to protect the mountains, rivers, forests, lakes, grass and sand, and promote the realization of the value of natural products ; the third is to improve the quality of services and promote the consumption pattern from single and basic consumption to diversified and improved consumption. The fourth is to promote innovation guidance, promote the development of new quality productivity, achieve key technological breakthroughs, and then promote industrial upgrading ; the fifth is to strengthen the system construction, through the system innovation, promote the production relations and productivity, superstructure and economic foundation, national governance and social development to better adapt.
Build a pluralistic co-governance system : from government-led to multi-agent joint efforts and multi-party coordination governance model. In the process of improving the quality of stock space, the initiative and enthusiasm of the government, market, society and other subjects should be mobilized to achieve co-construction, co-governance and sharing. Through government guidance, market operation and social participation, the modernization process of land space development and utilization is promoted.
Improve the logic of spatial planning : combine the ' top-down ' index decomposition with the ' bottom-up ' appeal feedback to enhance the initiative and participation of grassroots units and form a more reasonable spatial planning. Ensure that the planning not only conforms to the policy guidance of the superior, but also close to the actual needs of the local. Starting from the needs of the people 's better life, improve the living environment.
Enriching the means of land use control : advocating the transformation of land from a single function to a diversified and time-based function. This includes not only the realization of vertical or horizontal mixed function layout in space, but also the flexible adjustment of use function according to the needs of different periods in the 24-hour cycle, so as to maximize the efficiency of land use, promote intensive and connotative growth, and promote the optimal allocation and efficient use of land resources.
4. Conclusion
Territorial space governance is the cornerstone of supporting sustainable economic and social development, and it is also a key link in realizing Chinese modernization. During the ' 15th Five-Year Plan ' period, we must adhere to the equal emphasis on high-level protection and high-quality development, and build a more scientific, efficient and harmonious territorial space governance system by creating multiple spatial values, building a multiple co-governance system, improving the logic of spatial planning, and enriching the means of use control. This is not only to deal with the current challenges, but also for the long-term consideration, to create a more livable, resilient and intelligent urban living environment for the people, and to help China move towards the ranks of modern powers.
Source:https://www.planning.org.cn/news/view?id=16882
Translated & Edited by Jin He
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