摘要
国土空间用途管制作为国土空间治理的重要手段,对于推进空间治理体系和治理能力现代化,在更高层次上构建人与自然和谐共生的关系具有十分重要的作用。国土空间用途管制制度是整个生态文明制度体系中不可或缺的重要组成部分,但目前国土空间用途管制的制度依据主要表现为政策性文件,缺乏权威、统一和专门的法律规定,与依法治国时代背景下在法治轨道上推进生态文明建设的客观要求不相适应,需要加快构建国土空间用途管制法律制度,为国土空间用途管制提供法治保障。本文以此问题为导向,把国土空间用途管制制度置于宪法视野中加以审视,主要通过历史梳理和文本分析,厘清国土空间用途管制的科学内涵,探究其合宪性基础和宪法许可界限。本文认为,我国与国土空间用途管制相关的宪法规范经历了以土地和其他自然资源所有权确权为主的萌芽阶段、以各自然要素分散管制为主的发展阶段,以及全域全要素统筹管制的确立阶段。如今,国土空间用途管制因应了生态环境保护和生态文明建设的国家任务、保障国土空间资源开发利用秩序、实现国土空间治理体系和治理能力现代化等要求,从而得以在现行宪法中找寻到其获得宪法许可的合宪性基础。与此同时,现行宪法又为国土空间用途管制设定了许可界限,在实体方面主要表现为合法管制、法律保留、公共利益、比例原则等要求;在程序方面主要表现为信息公开和公众参与等要求。我们还需要通过对相关宪法规范进行立法转化,建立起与统一规划、统一用途管制的要求相适应的统一国土空间用途管制法律制度。
As an important means of territorial spatial management,territorial space use regulation has a very important role to promote the modernization of space management system and management ability and at a higher level to build a harmonious relationship between man and nature,territorial space use regulation is an integral part of the ecological civilization system.However,the current territorial space use regulation system basis mainly is policy documents,with lack of authority,unity and specific laws,it does not accord with the objective requirements of promoting ecological civilization construction under the rule of law under the background of the rule of law,we need to speed up the construction of territorial space use regulation legal system,to provide legal guarantee for the territorial space use regulation.Oriented by this problem,this paper examines the territorial space use system from the perspective of the constitution,and tries to clarify the scientific connotation of the territorial space use regulation mainly through historical analysis and text analysis,and explore the basis of its constitutionality and the boundary of constitutional permission.The paper holds that the constitutional norms related to the territorial space use regulation in China have gone through the initial stage of determining the ownership of land and other natural resources,the development stage of the decentralized control of natural ecological elements and the establishment stage of the overall regulation of all-fields and all-factors.Nowadays,the territorial space use regulation meets the requirements of carrying out the national tasks of ecological environment protection and ecological civilization construction,ensuring the order of the development and utilization of territorial space resources,and realizing the modernization of territorial space governance system and governance capacity,thus,the constitutionality basis of obtaining the constitutional permission can be found in the current Constitution.At the same time,the current Constitution sets permission limits for the territorial space use regulation,which mainly includes legal control,legal reservation,public interest and proportional principle;in terms of procedure,information disclosure and public participation.We also need to establish a unified legal system for regulating the use of territorial space in line with the requirements of unified planning and unified use regulation.
作者
唐如冰
TANG Rubing(Research Institute of Environmental Law,Wuhan University,Wuhan 430072,P.R.China)
出处
《重庆大学学报（社会科学版）》
CSSCI
北大核心
2023年第3期189-199,共11页
Journal of Chongqing University(Social Science Edition)
关键词
宪法
生态文明
国土空间
空间治理
用途管制
Constitution
ecological civilization
territorial space
spatial governance
use regulation
