Deeply Study and Implement General Secretary Xi Jinping’s Important Expositions on Territorial Space Planning, Better Serve High-Quality Development and Chinese-Path Modernization

Since the 18th National Congress of the CPC, General Secretary Xi Jinping

党的十八大以来，习近平总书记亲自谋划、亲自部署、亲自推动“多规合一”改革，就国土空间规划作出一系列重要论述。这些重要论述，是习近平总书记站在为全党全国谋大局的战略高度、统筹推进经济社会发展和生态文明建设的战略维度，以及覆盖全域全要素的空间尺度，对规划工作作出的深邃思考和重大部署，为规划工作指明了方向、提供了遵循。自然资源部党组以习近平新时代中国特色社会主义思想为统领，深入学习领会习近平总书记重要指示批示和党的二十届三中全会精神，按照党中央决策部署，持续深入推动“多规合一”改革，建立国土空间规划体系并监督实施，构建国土空间开发保护新格局，为高质量发展和中国式现代化建设贡献力量。

The "Shenzhen City National Territory Spatial Master Plan (2021–2035)" proposes to continuously optimize the "multi-center, cluster-based, ecological" urban spatial structure and promote the expansion and quality improvement of the metropolitan core circle. The picture shows an aerial view of Yantian District, Shenzhen City.

《深圳市国土空间总体规划（2021—2035年）》提出持续优化“多中心、组团式、生态型”的城市空间结构，促进都市核心圈扩容提质，图为深圳市盐田区鸟瞰。

Fully Understand the Important Significance of Establishing a Unified National Territory Spatial Planning System

充分认识建立统一国土空间规划体系的重要意义

General Secretary Xi Jinping attaches great importance to planning work, repeatedly pointing out that "scientific planning yields the greatest benefits, planning mistakes cause the greatest waste, and planning disruptions are the greatest taboo," emphasizing that "integrating spatial plans such as the main functional zone plan, land use plan, and urban-rural plan into a unified national territory spatial plan to achieve 'multiple plans integration' is a major decision and deployment made by the Party Central Committee." [1]1 The strategy of functional zones (主体功能区战略) is a national spatial planning approach that designates different regions (e.g., urbanization areas, agricultural production areas, ecological function areas) based on their resource carrying capacity and development potential, guiding differentiated development policies. National territory is the spatial carrier of ecological civilization construction. To make overall plans and carry out top-level design from a broad perspective, the first step is to design the national territory spatial development pattern well. Establishing a nationally unified, clearly responsible, scientifically efficient national territory spatial planning system and holistically planning the national territory spatial development and protection pattern in the New Era is an urgent need to resolve problems such as overlapping and conflicting spatial plans and frequent changes to local plans, and to draw a single blueprint for national territory spatial planning; it is a key measure to promote ecological civilization construction and foster harmonious coexistence between humans and nature; it is an important means to adhere to a people-centered approach and achieve high-level protection, high-quality development, and high-quality living; and it is an inevitable requirement to ensure the effective implementation of national strategies and realize the "Two Centenary Goals" and the Chinese Dream of the great rejuvenation of the Chinese nation. [2]2 The three control lines (三条控制线) are mandatory boundaries in Chinese spatial planning: the red line for farmland and permanent basic farmland to protect food security, the red line for ecological protection to safeguard ecosystems, and the boundary for urban development to control urban sprawl.

习近平总书记高度重视规划工作，多次指出“规划科学是最大的效益，规划失误是最大的浪费，规划折腾是最大的忌讳”，强调“将主体功能区规划、土地利用规划、城乡规划等空间规划融合为统一的国土空间规划，实现‘多规合一’，是党中央作出的重大决策部署”。国土是生态文明建设的空间载体，从大的方面统筹谋划、搞好顶层设计，首先要把国土空间开发格局设计好。建立全国统一、责权清晰、科学高效的国土空间规划体系，整体谋划新时代国土空间开发保护格局，是解决过去空间性规划重叠冲突、地方规划朝令夕改等问题，绘就国土空间一张规划蓝图的迫切需要；是推进生态文明建设、促进人与自然和谐共生的关键举措；是坚持以人民为中心，实现高水平保护、高质量发展和高品质生活的重要手段；是保障国家战略有效实施、实现“两个一百年”奋斗目标和中华民族伟大复兴中国梦的必然要求。

Accurately Grasp the Overall Requirements for Building the National Territory Spatial Planning System in the New Era

准确把握新时代国土空间规划体系建设的总体要求

Adhere to bottom-line thinking and consolidate the spatial foundation for safe development. General Secretary Xi Jinping proposed to "scientifically plan the national territory spatial development and protection pattern, establish and improve the national territory spatial control mechanism," and "promote the adaptation of the economic and social development pattern, urban spatial layout, and industrial structure adjustment to the carrying capacity of resources and the environment," emphasizing that "we must adhere to bottom-line thinking, take the national territory spatial plan as the basis, and treat urban, agricultural, and ecological spaces, as well as the ecological protection red line, the permanent basic farmland protection red line, and the urban development boundary, as red lines that cannot be crossed when adjusting the economic structure, planning industrial development, and promoting urbanization." [3]3 The “two unifications” (两统一) refer to the unified management of all natural resources and the unified spatial planning and use control across all territorial space, a core mandate of the Ministry of Natural Resources. Currently, the world has entered a new period of turbulence and transformation, and the domestic and international environment has brought a series of new issues and challenges

坚持底线思维，筑牢安全发展的空间基础。习近平总书记提出要“科学谋划国土空间开发保护格局，建立健全国土空间管控机制”“促进经济社会发展格局、城镇空间布局、产业结构调整与资源环境承载能力相适应”，强调“要坚持底线思维，以国土空间规划为依据，把城镇、农业、生态空间和生态保护红线、永久基本农田保护红线、城镇开发边界作为调整经济结构、规划产业发展、推进城镇化不可逾越的红线”。当前，世界进入新的动荡变革期，国内外环境给我国发展带来一系列新课题新挑战。我们要树立底线思维和极限思维，明确国土空间开发保护的约束指标和刚性底线，把经济活动、人的行为限制在自然资源和生态环境能够承受的限度内，把粮食安全、生态安全、水资源安全、能源资源安全、海洋权益安全等纳入国土空间规划管控要求，以高水平保护支撑高质量发展。

Adhere to a systems approach and optimize a new pattern of territorial space development and protection. General Secretary Xi Jinping emphasized that “we must, in accordance with the principle of balancing population, resources, and the environment and unifying economic, social, and ecological benefits, plan territorial space development as a whole, coordinate population distribution, economic layout, land use, and ecological environmental protection, and scientifically arrange production space, living space, and ecological space,” pointing out that “to promote regional development, we must pay more attention to the spatial balance between population, economy, and resources and the environment. We must not only promote economic and population balance among regions and narrow the gap in per capita GDP among regions, but also ensure that population and economy in each region match the carrying capacity of its resources and environment, narrowing the gap between population, economy, and resources and the environment.” The spatial structure of China’s economic and social development is undergoing profound changes. The traditional urban development model driven primarily by scale and factors of production is unsustainable. Newly added urban populations and emerging industries continue to concentrate in advantageous regions such as city clusters, metropolitan areas, and central cities. We must unswervingly implement the strategy of functional zones, [1]1 The strategy of functional zones (主体功能区战略) is a national spatial planning approach that designates different regions (e.g., urbanization areas, agricultural production areas, ecological function areas) based on their resource carrying capacity and development potential, guiding differentiated development policies. base our work on the carrying capacity of resources and the environment, leverage the comparative advantages of each region, build a unified national market, guide the rational flow and concentration of resource factors, and promote the formation of a new pattern of territorial space development and protection characterized by clear main functions, complementary advantages, and high-quality development.

坚持系统观念，优化国土空间开发保护新格局。习近平总书记强调“要按照人口资源环境相均衡、经济社会生态效益相统一的原则，整体谋划国土空间开发，统筹人口分布、经济布局、国土利用、生态环境保护，科学布局生产空间、生活空间、生态空间”，指出“促进区域发展，要更加注重人口经济和资源环境空间均衡。既要促进地区间经济和人口均衡，缩小地区间人均国内生产总值差距，也要促进地区间人口经济和资源环境承载能力相适应，缩小人口经济和资源环境间的差距”。我国经济社会发展的空间结构正在发生深刻变化，传统以规模驱动、要素驱动为主的城市发展模式难以为继，新增城镇人口和新兴产业持续向城市群、都市圈和中心城市等优势区域集聚。我们要坚定不移地实施主体功能区战略，立足资源环境承载力，发挥各地比较优势，构建全国统一大市场，引导资源要素合理流动和集聚，促进形成主体功能明显、优势互补、高质量发展的国土空间开发保护新格局。

Adhere to a people-centered approach and enable the people to enjoy more fruits of reform and development. General Secretary Xi Jinping emphasized that “we must adhere to the principle that cities are built by the people and for the people,” pointing out that “we must better advance people-centered urbanization, making cities healthier, safer, and more livable, and turning them into spaces for a high-quality life for the people.” China’s urbanization has transitioned from a stage of rapid development to a new type of urbanization that emphasizes both growth rate and quality and is people-centered. The people’s needs for a better life must be taken as the starting point and ultimate goal of our work. Whether planning and construction are done well or not must ultimately be measured by the people’s satisfaction. We must adhere to the people-centered development philosophy, focus on solving the pressing and difficult problems of the masses, coordinate functions such as housing, employment, transportation, and recreation in planning, enhance the equity and accessibility of basic public services, systematically lay out public open spaces that are blue-green intertwined and connect urban and rural areas, build urban and rural living circles that are suitable for living, working, traveling, studying, and caring for the elderly, and improve the quality of the living environment.

坚持以人民为中心，让人民群众享受更多改革发展成果。习近平总书记强调“坚持人民城市人民建、人民城市为人民”，指出“要更好推进以人为核心的城镇化，使城市更健康、更安全、更宜居，成为人民群众高质量生活的空间”。我国城镇化已从快速发展阶段进入到增速与质量并重、以人为本的新型城镇化阶段，必须把人民群众对美好生活的需要作为工作的出发点和落脚点。规划建设做得好不好，最终要用人民群众满意度来衡量。我们要坚持以人民为中心的发展思想，着力解决群众急难愁盼问题，在规划中统筹居住、就业、出行、游憩等功能，增强基本公共服务均衡性和可达性，系统布局蓝绿交织城乡连通的公共开放空间，建设宜居宜业宜游宜学宜养城乡生活圈，提升人居环境品质。

Adhere to carrying out the blueprint to the end and raise the level of modernization of the spatial governance system and governance capacity. General Secretary Xi Jinping emphasized that “once a plan is approved, it must be strictly implemented and carried forward from one term to the next, preventing the phenomenon of changing the plan with each change of leadership.” At present, the compilation and approval of overall territorial space plans at the provincial, municipal, and county levels nationwide have been largely completed. We must effectively promote the implementation of territorial space plans and establish and improve a complete set of territorial space planning systems composed of compilation and approval, implementation and supervision, policies and regulations, and technical standards. We must transform from traditional blueprint-style planning to governance-oriented planning, establish a concept of full life-cycle management, use new technical means such as information technology and artificial intelligence, coordinate urban planning, construction, and governance, and strive to blaze a new path of modern urban spatial governance suited to China’s national conditions.

坚持一张蓝图绘到底，提高空间治理体系和治理能力现代化水平。习近平总书记强调“规划经过批准后要严格执行，一茬接一茬干下去，防止出现换一届领导、改一次规划的现象”。当前，全国省、市、县各级国土空间总体规划编制审批工作基本完成，应切实推动国土空间规划落地实施，建立健全由编制审批、实施监督、政策法规、技术标准等构成的一整套国土空间规划体系。我们要从传统蓝图型规划向治理型规划转型，树立全生命周期管理理念，利用信息化、人工智能等新技术手段，统筹城市规划、建设、治理，努力走出一条符合中国国情的城市空间治理现代化新路。

Shoulder responsibilities and push the cause of territorial space planning to a new level.

挺膺担当，推动国土空间规划事业再上新台阶

Give play to the strategic guiding role of territorial space planning. In territorial space planning, coordinate the delineation and strictly adhere to the three control lines: [2]2 The three control lines (三条控制线) are mandatory boundaries in Chinese spatial planning: the red line for farmland and permanent basic farmland to protect food security, the red line for ecological protection to safeguard ecosystems, and the boundary for urban development to control urban sprawl. farmland and permanent basic farmland, ecological protection red lines, and urban development boundaries. Strengthen the guiding and constraining role of territorial space planning over various special plans, and effectively safeguard the authority and seriousness of territorial space planning. Based on the strategy of functional zones, promote the deep integration of major national strategies, expand the strategic depth of territorial space, provide spatial guarantees and make layout arrangements for major national strategies, regional coordinated development strategies, the development of new quality productive forces, and comprehensive rural revitalization. Improve the urban planning system, coordinate the allocation of population, resources, industries, and other factors within city clusters and metropolitan areas, promote the extension of public services and infrastructure from central cities to surrounding small towns and rural areas, form a multi-center, networked, intensive, and distributed regional development pattern, and guide the coordinated development and intensive and compact layout of large, medium, and small cities and small towns. Based on the “two unifications” [3]3 The “two unifications” (两统一) refer to the unified management of all natural resources and the unified spatial planning and use control across all territorial space, a core mandate of the Ministry of Natural Resources. responsibility positioning, establish and improve a territorial space use control and planning permit system that covers all types of land across the entire territory and is uniformly connected, and build use control rules based on territorial space planning that cover from land to sea, from above ground to underground, and all territorial space.

发挥国土空间规划的战略引领作用。在国土空间规划中统筹划定并严守耕地和永久基本农田、生态保护红线、城镇开发边界三条控制线，强化国土空间规划对各专项规划的指导约束作用，切实维护国土空间规划的权威性和严肃性。以主体功能区战略为基础，促进国家重大战略深度融合，拓展国土空间战略纵深，为国家重大战略、区域协调发展战略、新质生产力发展、乡村全面振兴等提供空间保障，做好布局安排。健全城市规划体系，在城市群、都市圈范围内统筹人口、资源、产业等要素配置，推动中心城市的公共服务、基础设施等向周边小城镇和乡村地区延伸，构建形成多中心、网络化、集约型、分布式的区域发展格局，引导大中小城市和小城镇协调发展、集约紧凑布局。立足“两统一”职责定位，建立健全覆盖全域全类型、统一衔接的国土空间用途管制和规划许可制度，构建以国土空间规划为依据，从陆地到海洋、从地上到地下，覆盖所有国土空间的用途管制规则。

Serve and safeguard the overall situation of economic and social development. In accordance with the functional orientation of different main functional zones, comprehensively utilize policy innovation tools such as planning and quotas, improve the land management system that efficiently aligns with macroeconomic policies and regional development, establish a mechanism that coordinates the allocation of new construction land quotas with the increase in the permanent resident population, and support major economic provinces in shouldering the heavy burden. Vigorously support urban renewal actions, strengthen the support and integrated innovation of planning and land policies, orderly promote mixed land development, composite spatial utilization, and reasonable conversion of uses, and create new space for the development of new industries, new business forms, and new models. Carry out urban health checks, fill gaps in public service facilities such as medical care, education, culture, sports, and elderly care according to local conditions, and while meeting the people’s aspirations for a better life, increase the value of land resources and assets.

服务保障经济社会发展大局。按照不同主体功能定位，综合运用规划、计划等政策创新工具，健全同宏观政策和区域发展高效衔接的土地管理制度，建立新增建设用地指标配置同常住人口增加相协调的机制，支持经济大省挑大梁。大力支持城市更新行动，加强规划和土地政策支撑和融合创新，有序推动土地混合开发、空间复合利用、用途合理转换，为新产业新业态新模式发展创造新空间。开展城市体检，因地制宜补齐医疗、教育、文化、体育、养老等公共服务设施短板，在满足人民群众对美好生活向往的同时，提高土地资源资产价值。

In the construction of the 15-minute community life circle in Shanghai, a batch of “small yet beautiful, small yet refined” age-friendly pocket parks have been planned and built. The picture shows Mí Lè Park located in the Meiyuan area of Lujiazui Subdistrict, Pudong.

上海市在15分钟社区生活圈建设中，规划建设了一批“小而美、小而精”的全龄友好型口袋公园，图为位于浦东陆家嘴街道梅园片区的迷乐公园。

Build a “single map” for territorial space planning. Based on the territorial survey and the construction of a real-scene 3D China, establish a “single map” with unified standards, clear baseline data, and coverage of all elements of natural resources, achieving unified management of various resources such as arable land, minerals, oceans, water, forests, grasslands, wetlands, deserts, and national parks, and solving the problems of unclear baseline data, inconsistent standards, and lack of horizontal and vertical coordination for natural resources. Based on the basic information platform for territorial space planning, form a “single map” for territorial space planning that integrates land and sea, unifies urban and rural areas, and manages all territorial elements, coordinate spatial demands and conflicts among various specialized fields on this “single map,” and improve the level of planning informatization and digital-intelligent governance. In accordance with the requirements of “unified base map, unified standards, unified planning, and unified platform,” promote data sharing among departments, establish a working mechanism for departmental coordination and alignment, truly make planning come alive, manage resources effectively, and enable everyone to use them.

建设国土空间规划“一张图”。以国土调查和实景三维中国建设为基础，建立标准统一、底数清晰、覆盖自然资源全要素的“一张图”，实现对耕地、矿产、海洋、水、森林、草地、湿地、荒漠和国家公园等各类资源的统一管理，解决自然资源底数不清、标准不一、横向纵向不衔接的问题。基于国土空间规划基础信息平台，形成陆海统筹、城乡统一、全域全要素管理的国土空间规划“一张图”，在国土空间规划“一张图”上统筹协调各专项领域空间需求和矛盾冲突，提高规划信息化、数智化治理水平。按照“统一底图、统一标准、统一规划、统一平台”要求，推动部门数据共享，建立部门协调衔接的工作机制，真正让规划活起来、把资源管起来、让大家用起来。

Establish a regular evaluation mechanism for planning implementation. Based on the “single map” for territorial space planning, combined with the five-year plan for national economic and social development, establish a system of regular planning health checks and five-year evaluations, accelerate the construction of a territorial space planning implementation monitoring network (CSPON), improve the monitoring, evaluation, and early warning mechanisms for the implementation of territorial space planning at all levels and across all types, and use the planning evaluation results as an important basis for supervision and assessment of planning implementation. Based on the results of regular health checks and five-year evaluations, dynamically adjust and improve the implementation of territorial space planning, establish a full life-cycle management mechanism of “planning—implementation—evaluation—supervision” for dynamic maintenance, and better adapt to the needs of economic and social development.

建立规划实施定期评估机制。基于国土空间规划“一张图”，结合国民和经济社会发展五年规划，建立规划定期体检和五年评估制度，加快建设国土空间规划实施监测网络（CSPON），健全各级各类国土空间规划实施监测评估预警机制，将规划评估结果作为规划实施监督考核的重要依据。根据定期体检和五年评估的结果，对国土空间规划实施情况进行动态调整完善，建立“规划—实施—评估—监管”动态维护的全生命周期管理机制，更好地适应经济社会发展需要。

Consolidate the legal, policy, and talent foundation for territorial space planning. On the basis of current local regulations and management practices, accelerate the introduction of the *Territorial Space Planning Law of the People’s Republic of China*, so that the reform achievements of “integrating multiple plans into one” can be brought into the legal track as soon as possible. Accelerate the improvement of the planning technical standards system, continue to implement the three-year action plan for the construction of the territorial space planning standards system, comprehensively review and evaluate original planning-related standards and revise them in a timely manner, and improve the practicality and timeliness of the standards. Strengthen the construction of the planning discipline, rely on the Urban and Rural Planning Education Steering Committee, deepen the construction and experience promotion of the planning practice teaching community, and accelerate the construction of the planning textbook and curriculum system. Strengthen the construction of the industry workforce, optimize the management and services of registered planners, increase support for major science and technology projects and scientific and technological evaluation in territorial space planning, and strengthen the cultivation of high-end planning talents.

夯实国土空间规划的法规政策和人才基础。在目前地方法规和管理实践的基础上，加快推进《中华人民共和国国土空间规划法》出台，使“多规合一”的改革成果尽快纳入法制化轨道。加快完善规划技术标准体系，继续实施国土空间规划标准体系建设三年行动计划，全面梳理评估原有规划相关标准并适时修订，提高标准的实用性和时效性。加强规划学科建设，依托城乡规划教育指导委员会，深化规划实践教学共同体建设与经验推广，加快规划教材和课程体系建设。加强行业队伍建设，优化注册规划师管理与服务，加大对国土空间规划重大科技专项、科技评价的支持，加强规划高端人才培养。

Online editor: Tongxin

网络编辑：同心