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日本、中国和韩国的国土空间规划体系
Kyungrock YE, Jun-hua ZHANG, Takeshi KINOSHITA, Xing-yan WANG
Abstract: This study conducted the national territory planning system of Japan, China and Korea, on a premise to discuss possibility of integrated spatial planning of Eastern Asia. The purpose of this study is to arrange major spatial plans of three countries according to classification of urban and non-urban area, and to clarifying role of each spatial plan.。
文摘:本研究是在进行中国、日本、韩国的国土规划体系前提下,探讨整个亚洲东部的综合空间规划的可能性。本研究的目的是根据城市区域和非城市区域的分类，明确大空间计划下三个国家在规划中所扮演的角色。
As a result, Korea, the smallest country among three countries, has one system on land use, development and conservation, considering whole national territory to be one city planning area, and a role and relation of each spatial plan is comparatively clear. On the other hand, China, the largest country among three countries, although a role and relation of each spatial plan are clear in urban area, a general recognition for necessity of non-urban area planning is weak. In case of Japan, the characteristics that the spatial planning system is consisted on the division into urban area and non-urban area, is very similar to China, and there is hardly relation between these two kinds of spatial planning.
最终,作为最小国家的韩国,已拥有一个针对土地使用、发展与保护的体系,它把整个国家领土是一个城市规划区考虑，每个空间的规划的角色和关系较为清楚。另一方面,作为最大国家的中国,尽管市区的空间规划是很明确，但人们对非城市的空间规划重视程度都非常薄弱。在日本，空间规划系统对城市区域和非城市地区的划分原则跟中国是非常相似的 ,这两种类型的空间规划几乎没有必然的关系。
Key words: National territory plan; Japan; China; Korea; Spatial planning; Eastern Asia Community.
关键词:国土规划;日本、中国、韩国、空间规划、东亚共同体。
Recently it is frequently discussed on the Eastern Asia Community. This is still mainly focused on the economy, but in environmental aspect we also have some common serious problems ,e.g.sustainable development, bio-diversity, outstanding landscape/nature conservation, balanced development of town and country, cultural assets conservation/utilization and several environmental problems. In order to settle these subjects, it is important not only to challenge by each country but also to prepare a common framework for comprehensive spatial planning covering whole eastern Asia..
最近东亚共同体经常被讨论，主要关注仍然是经济问题,但在环保方面我们也有一些常见的严重问题需要解决,如可持续发展、生物多样性

、优秀景观、自然保护、城乡协调发展、文化遗产保护、环境问题等。解决这些问题,重要的不仅是对每个国家的挑战,而是需要准备一个常见的全面覆盖整个亚洲的空间规划的框架。
This study was done to clarify the similarities and differences of national territory planning system of Japan, China and Korea as a first step to discuss on the subjects and possibilities of comprehensive Eastern Asian spatial planning. Until now the national territory planning system of Japan and Korea have already been studied , but the comparative study between three countries including China from the viewpoint of spatial planning has never seen before. We used mainly related literatures on planning system and government's official websites of each country to clarify the purposes of this study. And we classified each country's major spatial plans into four categories,national, regional, urban area and non- urban area, and discussed on the vertical and horizontal relation between them.
本研究之目的：第一步是明确日本、中国和韩国的国土规划体系的异同,讨论综合东亚空间规划的课题和可能性。迄今为止,日本和韩国的国土规划体系已经进行了比较研究阶段,但从空间规划的角度对三个国家的比较研究还未进行。我们主要在每一个国家的规划系统的相关文献、政府的官方网站上阐明了本篇研究的目的。我们按照整个大空间规划把每个国家分为国家、地区、城市区域和非城市区域四类,讨论垂直和水平的关系。
1 National Territory Planning System of Japan
The Comprehensive National Development Act(1950), Land Use Planning Act(1974) and City Planning Act (1968) support Japanese major spatial planning (Table 1). These are all under the jurisdiction of the Ministry of Land, infrastructure and Transport. The CNDP provides tong-range visions on nation-wide land use, development and conservation, social overhead capital, and a traffic policy. According this plan, the CPDP and MLP are to be prepared. The Plans provided by Land Use Planning Act includes NLP and PLP on the perspective of effective national land use and LUMP that classified prefectural land use into five areas (town, agriculture, forest, natural park and natural conservation area). Fig. 1 shows that there are main two spatial plans by two acts at national and regional level, but the relation and a role sharing between the acts and plans.Representative plans of urban area and non-urban area are the MLP by Land Use Planning Act and the CP by City Planning Act, but the relation between the two is not clear and actually the only CP plays a key role to control land use. it is clear that the Japanese national territory planning is divided into NLP and CP and the role of regional planning is relatively small. Therefore the area that is closely covered by main three acts is only 'city planning area', the other non-urban ar

ea is depended on other related acts (Fig.1). The area classification by LUMP supports competent ministries and acts, and separate plans are applied to each area. In other words, one may say that the Japanese national territory planning stresses the urban areas' plans and in non-urban areas there is no comprehensive plan that unifies the related plans (Fig. 1) and a frame/role of regional planning is relatively weak.
一、日本的国土规划系统
综合国家发展行动(1950年)、土地利用总体规划(1974年)和城市规划条例(1968)都支持日本主要的空间规划(表1)。这些都是其管辖下的土地、基础设施、运输。CNDP提供在全国土地利用、保护和发展、社会资本,交通政策的概念规划。根据该规划,CPDP和MLP已经开始准备。这个能提供土地利用总体规划的计划包括对国家土地利用分类的PLP和 NLP和对县级土地利用分成五类(镇、农、林、天然公园和自然保护区)的LUMP。图1显示了两个在国家和地区的水平上主要的空间计划的行为,但这种关系和角色被行为和计划分享，市区和非市区域的代表计划是由土地利用总体规划的的MLP和城市规划的CP,但二者之间的关系尚不清楚,其实只有CP扮演着关键的角色来控制土地使用。很明显,日本国土规划分为NLP和CP，而区域规划的影响是较小的。因此,市区主要由三个行为控制,而其他的非市区是依靠其它相关的行为。LUMP对这个地区的分类支持主管部门和行为,并单独应用于各区域计划中。换句话说,日本国土规划强调城市地区的计划和非地区并没有全面结合相关计划,区域规划还相对薄弱。
2.National Territory Planning System of China
The Land Management Act (1986), City Planning Act (1989), and the Village and Country Planning Regulations (1993) support Chinese major spatial planning. The competent ministries are classified into the Ministry of Land and Resources , the Ministry of Construction , and the National Development and Reform Commission. Under the Land Management Act the administrative authorities (upper level of prefecture) prepare the CNLUP to classify the future land use and control, to regulate net volume of construction site, and to protect farmlands. Under the City Planning Act, the NTCP provides a long-range hierarchy of cities' population size and city planning area in the whole national territory from the comprehensive strategic viewpoint of economical and social development in harmony with resources and ecological environment. The CP is constituted with ComP (indicates the future development direction and land use of administrative units upper level of prefecture), DP (which is prepared in the district area), and DeP (provides other detail items). The VCP provides village and country's development direction and placement plan of production and life facilities such as transport, disaster prevention, commerce a

nd greening, etc., enhancing local identity. The RP is a wide area planning of an economic community covering plural administrative units to harmonize economical development and resources management like as 'The Yangtze River Delta Area Plan'. This plan has possibility to play a role of wide area (theoretically whole national area) adjustment beyond a wall between administrative areas targeting a plan of city size, transport networking, utilization, development and conservation of resources, etc., but it is said the power and management base as a spatial plan are relatively weak 。
By the way in the letter of each act it is prescribed that the VCP has to adjust itself to CP and CLUP, and the CF has to adjust itself to the CLUP and RP, but actually false setting has occurred frequently because of a difficulties of planning adjustment between different ministries and unclear share of the role between these plans. On the other hand, the administrative authorities upper level of prefecture has a responsibility to prepare each plan, thus it is said that there is much repetition of a plan，however, the almost whole national territory (both urban areas and non-urban areas) is closely covered by these CP and VCP (Table 1).
As a result, in the national territory.planning there are similar planning concepts as much as the number of competent ministries, possibility to become a repetition plan is high. This planning system make covering both town and country area has already been established, but each plan is tend to be bound to an administrative authority, therefore a general idea such as RP is need to spread, that can adjust the matters in wide area covering some provinces and in medium area covering some cities and prefectures.
二、中国的国土规划体系
土地管理行为(1986)、城市规划条例(1989)、村庄和国家规划法规(1993)支持中国主要的空间规划。主管部门分为国土资源部、建设部、国家发展和改革委员会。根据土地管理法的行政当局（县上级）拟订CNLUP分类未来的土地利用和控制、规范施工现场的净体积、保护农田。根据城市规划法，NTCP提供了城市的远期层次的人口规模,从整个城市的综合经济、社会与资源和生态环境协调发展的战略高度规划国土面积。 CP是由ComP（指出今后的发展方向和土地使用单位的行政上级县），DP（这是该区面积编写），和DEP（提供其他细节项目）。VCP提供乡村和国家的发展方向和安置计划的生产和生活设施，如交通，灾害预防，商业和绿化等，加强地方认同。RP是一个涵盖了经济社会的广泛多元的行政区划区规划，协调经济发展和资源管理，就好像'长江三角洲地区计划'。这个计划的可能性，以发挥广域（理论上整个国民经济领域中的作用）超出目标之间的城市规模，交通网络，利用、开发和资源保护等规划调整行政

区域，但作为一个空间计划，力度和管理基础相对薄弱。
另外，每一个字母的方式行为是受到规定的，VCP必须调整自己CP和CLUP，并且CF要调整自己的CLUP和RP，但实际上错误经常发生，因为经常筹划困难调整各部委之间和它们之间的共享计划的作用尚不清楚。另一方面，行政当局县上层有责任准备每个计划，因此有人说，有很多重复的计划，但是，几乎整个国家领土（包括城市地区和非城市地区）密切受这些CP和VCP的影响（表1）。
因此，在国家国土规划上有类似的规划概念跟主管部门的数目一样多，从而重复的计划也变得非常高。这个系统使规划覆盖城市和农村地区都已经建立，但每个计划往往被绑定到一个行政机关，因此，一个总体思路如RP是发扬的，可以调整包括一些省在内的大区域，和包括一个区域及市的区域。
3 National Territory Planning System of Korea
The Korean system is simpler than the Japanese and the Chinese one, reflecting small national territory. Major spatial planning related acts are the Framework Act of National Territory(2002) and the Act on Planning and Use of National Territory (2002) ， and the competent authority is the Ministry of Construction and Transport only. Plans provided by these two acts completely share in responsibility. The CNTP provides fundamental and long-range policies on the nation/ region/municipality's development direction and future image, utilization and management of land resources,disaster prevention and environmental conservation and improvement, etc. The RP (provided by the Act on Planning and Use of National Territory), which is comprehensive plan covering wide area (that is set if necessary) to extend to several cities and counties, aims to share in responsibility of urban functions at wide scale, open space planning, environmental planning, and landscape planning. The CP (covering urban areas) and the CoP (covering non-urban of areas) are the long-range comprehensive spatial planning, and both plans consist of a master plan and a management plan. The CMP and COMP provide direction and aims of land use,development and conservation and the CMaF and the CoMaP conduct a management of them. Consistency between plans is high because of a Strlct top and bottom relation. The relation between the CoP and other related acts (by other ministries) are clear, too. In addition the CP and CoP are in the higher position of spatial planning system in competent administrative area, and they function as an integrated planning in a city or a county. As a small country Korea, to applying different planning system to town side and countryside rather brought an environment or landscape impoverishment in non-urban areas, thus it became possible to apply technique of city planning to a non-urban area under establishment of new acts of 2002.
As a result the Korean pl

anning system became simple structure, but the strict relation Between a higher plan and a lower plan may bring standardization and stiffening of planning.therefore it become basic subjects how to surpass the simple way of thinking of city planning system, how to apply other related plans and local and national identity into plans, and how to integrate/use effectively ministries' viewpoints.
三、韩国国土规划体系
韩国系统要比日本和中国的简单些，反映了小国家的领土。主要空间规划的有关行为，是国家领土（2002年）和规划与国家领土（2002年），而主管机关仅仅是建筑部和交通运输部。这两个计划所提供的行为完全分担责任。CNTP利用土地资源、预防灾害和环境的保护和改善等，对国家、地区、直辖市的发展方向和未来的形象提供根本和长远政策，RP（由规划和使用法规定管理的国土）是个全面计划，涵盖广泛的区域（如果有必要即设置）扩大到好几个城市和县，旨在大规模地在城市功能分担责任，开放空间规划、环境规划、景观规划。CP（包括市区）和COP（包括非地区的城市）是长期提供全面的空间规划，两个计划包括一个总体规划和管理计划. CMP 和COMP提供指导和土地利用，开发和保护以及CMaF和COMAP是他们的目标进行管理。计划之间的一致性，就像顶部和底部的关系。COP和其他部委的关系是明确的。此外，CP和CoP作为主管行政区域空间规划体系较高的位置对一个城市甚至国家进行综合规划。韩国作为一个小国，对城镇和农村的采用不同的规划制度，以带来的非城市地区的环境或景观发展，因此它使得2002年运用城市规划下建立新的行为非市区成为可能。
因此，韩国计划体制成为结构简单，但严格意义上，较高和较低的计划可能带来的标准化，因此基本问题是如何超越了城市规划体系，思考如何适用其他相关的计划和地方、国家计划，以及如何简单方法整合、使用部委的观点。
4 Conclusions
(1)Acts and competent ministries related national territory plan: One may say that Japan and China have similar planning system, as .showing (Fig.l) when there is plural acts that support national territory plan, the relation between plans and a role of each ministry should be made clear.
(2)Vertical relation of plans: China and Korea has comparatively clear vertical relation between plans because they both have strong nature to transmit planning policy from top to bottom. However, an each plan of China was strictly bound to administrative unit and in Japan the role of semi-wide area planning is relatively weak. In the future, setting wide-area planning beyond single administrative unit would be possible to connect effectively the higher plans and the lower plans,according to economic, cultural and natural conditions.
(3)Spatial area

covered by national territory plan: In Japan the area covered by a certain comprehensive plan is actually limited to city planning area (CPA). Spatial planning does not cover almost non-CPA area; therefore comprehensive environmental or landscape improvement from a viewpoint of multi-directions is possibly difficult.
(4)Weight of planning: We might say Japan puts the weight of planning to urban area, and Korea, theoretically, puts the weight to both urban and rural area equally. In China, nowadays the weight of planning is particularly on tile urban area with high economic growth. However it is important tasks to establish non-urban area's comprehensive planning in three countries, in other words, to conserve their own nature, culture and landscapes of non-urban area, strengthening local identity and originality.
Through this study, we can refer that there is a big relation between the size of national territory and a character of the planning system. Wider national territory has more multistage administrative unit, and the planning phase also tends to become more complicated. If we assumed the Eastern Asian Spatial Planning as one community, the subjects would be wider regional tasks like nature/environment/biosphere/cultural area conservation, economical and social interchange, and strategic traffic route,’etc. Considering these themes, it will be needed in the future to collect information about Eastern Asia to study possibility of a wide area zoning across the country borders.
4结论：
（1）行为和国家有关部委主管领土的计划：可以说，日本和中国有类似的规划体系。如（Fig.l）显示，当有计划支持国家领土复数行为，每个部门的关系和作用应该明确。
（2）垂直关系的计划：中国和韩国之间的计划纵向关系比较明确，因为它们都具有很强的性质，规划政策从上倒下贯穿。但是，在中国每个行政部门的计划被严格约束而在日本的规划的作用相对较弱。今后，根据经济、文化和自然条件有可能设置超出单一的行政单元规划来有效地连接近远计划。
（3）空间面积覆盖全国领土的计划：在日本某地区综合计划实际上是仅限于城市规划区（注册会计师）。空间规划不包括几乎非注册会计师地区，因此从多方向角度的改善全面的环境或景观可能是困难的。
（4）规划重点：我们可以说，日本提出了在城市规划区内的重点，韩国理论上提出了同等重视城市和农村地区。在中国，现在的重点是规划与城市经济高增长相协调。然而，它的重要任务是建立在三个国家的非城市地区的综合规划，换句话说，要保护自己的自然、文化和非市区景观，加强地方认同和独创性。
通过这项研究，我们可以参考，一个国家领土之间的大小和规划体系的特点有很大关系。更广泛的国家领土上有更多的多级

行政单位和规划阶段，也往往使其变得更加复杂。如果我们假定东亚空间规划为一个社会，则环境、生物圈、文化保护区，经济和社会交流，交通路线和战略等学科将会有更广泛的任务。考虑到这些主题，这将是今后需要收集有关资料，以研究跨越国家边界地带东亚地区。
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