自资部国土空间规划局：建好全国统一的国土空间规划“一张图”实施监督信息系统

(AI translation below)

导读

习近平总书记高度重视国土空间规划工作，强调“要按照统一底图、统一标准、统一规划、统一平台的要求，建立健全分类管控机制”。近日，国家市场监督管理总局批准发布国家标准《国土空间规划“一张图”实施监督信息系统技术规范》（GB/T 39972-2021），这是《中共中央国务院关于建立国土空间规划体系并监督实施的若干意见》发布后，国土空间规划领域发布的首个国家标准，旨在基于国土空间基础信息平台，通过建立健全系统运行机制和数据管理规则，加强信息交互与协同，形成各层级叠合、覆盖全域、动态更新、权威统一的全国国土空间规划“一张图”，应用于国土调查、规划编制审批、用途管制、执法督察等各环节，实现国土空间规划编制、审批、修改和实施监督全周期管理，是保障国家战略有效实施、推进国土空间治理体系和治理能力现代化的重要管理手段。为深入学习领会标准内涵、指导各地加快建设国土空间规划“一张图”实施监督信息系统，中国自然资源报组织部相关单位、各地自然资源主管部门负责同志及专家学者撰写解读文章，供各地交流参考。

强化顶层设计聚焦重点难点加大推进力度

建好全国统一的国土空间规划“一张图”实施监督信息系统

自然资源部国土空间规划局

建立坐标一致、边界吻合、上下贯通的国土空间规划“一张图”，是贯彻落实习近平总书记“统一底图、统一标准、统一规划、统一平台”重要指示和《中共中央国务院关于建立国土空间规划体系并监督实施的若干意见》（以下简称《若干意见》）的基础性制度。为指导全国加快形成国土空间规划“一张图”，推进“智慧规划”建设，2018年10月，自然资源部会同有关方面，启动相关国家标准研制工作。2021年3月，经国家市场监督管理总局批准，《国土空间规划“一张图”实施监督信息系统技术规范》（GB/T 39972-2021）（以下简称《规范》）正式发布，成为“多规合一”改革后国土空间规划领域首个国家标准，明确依托全国统一的国土空间基础信息平台，以第三次全国国土调查数据形成底图，叠合各级各类国土空间规划，形成全国国土空间规划“一张图”，作为规划编制审批、实施监督全周期管理及专项规划“一张图”衔接核对的权威依据。

1.强化顶层设计，支撑规划全周期管理

启动标准研制以来，我们深入学习贯彻习近平总书记关于网络强国的重要思想和数字中国战略部署，坚持新发展理念，对照高质量发展要求，始终把数字化智能化智慧化监管平台建设作为国土空间规划体系建设的重要内容，并摆在优先位置认真谋划。我们按照部党组“科学、简明、可操作”的要求，以整合空间类规划、落实“多规合一”、形成“一本规划”“一本蓝图”为目标，着眼于强化规划全周期管理，推动解决过去各类规划内容重叠冲突、重规划编制轻规划实施、规划调整修改随意等突出问题，在总结提炼各地实践、广泛听取多领域专家意见基础上，完成了《规范》研制。

以目标为导向，强化标准引领。国土空间规划“一张图”实施监督信息系统（以下简称规划“一张图”系统）是构建五级三类国土空间规划体系的统一数字化技术支撑。《规范》明确了“四个层次、两个体系”的总体框架，即设施层、数据层、支撑层、应用层和标准规范体系、安全运维体系；阐明了与其他业务系统的关系；明确了国、省、市、县一体建设，部门间共享协同的运转机制；规定了数据类型和要求以及主要功能应用等；确立了规划“一张图”系统建设的目标。

以问题为导向，提升规划全周期管理能力。规划“一张图”系统是实现国土空间规划全周期管理的有力手段。为防止出现违规编制、擅自调整、违规许可、未批先建、监管薄弱等乱象，《自然资源部办公厅关于加强国土空间规划监督管理的通知》（自然资办发〔2020〕27号）明确提出“实行规划全周期管理”，要求将国土空间规划“一张图”作为统一国土空间用途管制、实施建设项目规划许可、强化规划实施监督的依据和支撑。《规范》紧紧围绕规划编制、审批、修改和实施监督全流程，明确了国土空间规划的“一张图应用”“国土空间分析评价”“成果审查与管理”“实施监督”“指标模型管理”和“社会公众服务”等6大类23项功能。其中，重点强化了规划的智能化编制、智能化审查、智能化监管功能；并保持分析评价指标模型、算法的开放性，为适应不断发展的国土空间规划编制管理实践预留了接口。

以服务为导向，注重共建共享共治。规划“一张图”系统是保障各级政府、各相关部门单位、社会公众共同参与国土空间治理的数字化基础设施。国土空间数据是数字空间的基础数据底盘。《规范》要求规划“一张图”系统以数据为“细胞”，加强多源数据归集，赋能国土空间智慧治理；以共建共享为原则，分类有序推进上下级、部门间数据共享，鼓励跨部门跨层级多场景应用开发；设置社会公众服务模块，在满足公开公示、意见征询、公众监督等基本功能基础上，着力对接民众急需的高频应用场景，切实加强规划的公众参与，提高人民群众的获得感、幸福感和安全感；旨在依托规划“一张图”系统推动国土空间治理机制流程的重塑、治理方式效能的提升，把数据优势切实转化为治理优势，促进国土空间治理体系和治理能力的质量变革、效率变革、动力变革。

2.避免重复建设，务实完善系统功能

《规范》要求，各地推进规划“一张图”系统建设应本着节约和从实际需求出发的原则，充分利用已有信息化工作基础，避免重复建设，并注意把握好“四个突出”。

突出数据统一融合。《规范》要求基于国土空间基础信息平台，依据统一的测绘基准以及统一的用地用海分类标准，集成基础地理信息和自然资源调查监测成果数据，形成覆盖全域、三维立体、权威统一的国土空间数字化“底板”。在此基础上，逐级汇交纳入国土空间总体规划、详细规划成果数据，叠加相关专项规划成果数据，形成国土空间规划“一张图”。同时，着力营造安全、开放、充满活力的数字化治理生态，充分运用物联网、5G、大数据、云计算、区块链、人工智能等先进技术，促进国土空间数据与经济社会综合数据的融合应用，推动建设全要素、多类型、全覆盖、实时更新的权威国土空间数据库，将海量数据转化为“数据红利”，夯实“可感知、能学习、善治理、自适应”的智慧规划建设基础。

突出数据共建共享。《规范》要求开发专项规划与“一张图”的核对衔接功能，对专项规划开展符合性审查，并将经衔接一致的专项规划成果纳入规划“一张图”系统，统一各类开发保护建设活动的国土空间用途管制依据。同时，强调要为其他部门提供规划成果数据共享。“共建”与“共享”是一个硬币的两面，相辅相成、互为促进，共建是为了更高水准的共享，共享有助于推动更广范围的共建。《若干意见》提出，“整合各类空间关联数据，建立全国统一的国土空间基础信息平台。”国土空间基础信息平台积累了原国土资源部时期以来丰富的调查监测、地理国情、遥感影像等数据，是支撑包括规划“一张图”系统在内的各部门涉空间治理信息系统和应用的统一数据基底。为不折不扣落实党中央“多规合一”改革的重大决策部署，各地在推进有关信息系统和应用建设过程中，应严格按照中央文件要求，将各类空间关联数据统一整合到国土空间基础信息平台上来，为智慧城市、城市信息模型等各类应用提供统一的空间数据服务支撑，坚决杜绝各自为政、另搞一套，影响统一国土空间用途管制制度落地；最大程度避免财政重复投资，发挥出行政资源的集成综合效应。

突出上下互联互通。《规范》以因地制宜、统分结合为原则，要求国、省、市、县分级完成规划“一张图”系统建设，实现上下贯通，确保规划目标要求逐级传导落地。同时，鼓励各地扩展开发符合当地需要、更加精细化的应用场景和功能模块，增强动态感知城乡发展态势、智能分析城乡空间治理问题短板的能力，促进政府决策科学化、社会治理精细化、公共服务高效化。

突出服务便民利民。《规范》鼓励以方便企业和群众为出发点和落脚点，在应用层开发完善服务社会公众、企事业单位、科研院所的相关功能模块，畅通沟通渠道，支持科学研究，凝聚各方智慧，推动宜业、宜居、宜乐、宜游的人民城市建设，让人民群众感受到城乡空间品质实实在在的提升。

3.加大推进力度，确保能用、管用、好用

各省（区、市）自然资源主管部门要进一步把思想统一到党中央“多规合一”改革的重大决策部署上来，深刻认识规划“一张图”系统在推进国土空间治理体系和治理能力现代化、提升城乡治理水平、服务民生改善等方面的积极意义，切实按照部党组统一工作部署和《规范》要求，充分发挥主观能动性和创造性，加快推进系统建设，完善配套制度规则，拓展丰富应用服务。

加快落实进度，把系统“建”起来。《自然资源部办公厅关于开展国土空间规划“一张图”建设和现状评估工作的通知》（自然资办发〔2019〕38号）明确要求，未完成系统建设的市县不得先行报批国土空间总体规划。各地应对照《规范》，抓紧完成规划“一张图”系统建设，确保不影响各级规划报批，为国土空间规划实施管理提供及时的技术支撑。

打通数据采集、融合、共享和应用全链条，让数据“跑”起来。数据的生命在于应用。要进一步强化主动服务意识，以用促建，在数据汇集、系统集成、上下联动、有序共享上下更大功夫，不断提高数据汇集的能力、效率和质量，持续提升数据分析应用的水平。

加大探索创新力度，把应用场景“搭”起来。要坚持用户需求视角，抓住场景应用这个“牛鼻子”，会同有关部门，在城乡治理、民生需求的重点领域，聚焦痛点、堵点、难点，针对性地开发应用场景，助力智慧城市与数字乡村建设，努力提供更多普惠便捷、优质高效的数字服务，让人们更好共享信息化发展成果。

完善配套规则标准，把制度“立”起来。规则层面的“一张图”与技术层面的“一张图”同等重要。要在当地党委、政府支持下，不折不扣抓好党中央、国务院决策部署落实，健全完善有利于“多规合一”、有利于共建共享的规划“一张图”系统建设应用规则标准，推进业务标准化、工作流程化、管理规范化。同时，统筹发展与安全，严格落实安全运维要求，建立健全管理制度，保证数据安全。

Build a National Unified Land and Spatial Planning "One Map" Implementation Supervision Information System

Guide reading

General Secretary Xi Jinping attaches great importance to spatial planning and emphasizes that "a sound classification control mechanism should be established in accordance with the requirements of unified base maps, unified standards, unified planning and unified platforms". Recently, the State Administration of Market Supervision approved the release of the national standard "Spatial Planning", "Technical Specification for Implementation Supervision Information System" (GB/T 39972-2021), This is after the publication of Several Opinions of the CPC Central Committee and the State Council on Establishing Spatial Planning System and Supervising Its Implementation, The first national standard issued in the field of spatial planning, Based on the basic information platform of land and space, By establishing and perfecting the system operation mechanism and data management rules, Strengthen information interaction and collaboration, Form a "one map" of national spatial planning with overlapping levels, covering the whole region, dynamically updating and unified authority, It is an important management means to ensure the effective implementation of the national strategy and promote the modernization of the land spatial governance system and governance capacity by applying it to land survey, planning approval, use control, law enforcement supervision and other links to realize the full-cycle management of spatial planning preparation, approval, revision and implementation supervision. In order to thoroughly study and understand the connotation of the standard and guide all localities to speed up the construction of spatial planning "one map" implementation supervision information system, relevant units of the Organization Department of China Natural Resources News, responsible comrades of local natural resources departments, experts and scholars wrote interpretation articles for local exchanges and reference.

Strengthen the top-level design, focus on key difficulties and increase the impetus

Build a National Unified Spatial Planning "One Map" Implementation Supervision Information System

Ministry of Natural Resourcesspatial Planning

The establishment of a "one map" of spatial planning with consistent coordinates, consistent boundaries and up-and-down connection is the basic system for implementing the important instructions of General Secretary Jin Ping on "Unified Base Map, Unified Standards, Unified Planning and Unified Platform" and "Several Opinions of the CPC Central Committee and the State Council on Establishing Spatial Planning System and Supervising Its Implementation" (hereinafter referred to as "Several Opinions"). In order to guide the whole country to speed up the formation of "one map" of spatial planning and promote the construction of "smart planning", in October 2018, the Ministry of Natural Resources, together with relevant parties, started the development of relevant national standards. In March 2021, With the approval of the State Administration of Market Supervision, Technical Specification for Implementation Supervision Information System (GB/T 39972-2021) (hereinafter referred to as Specification) was officially released, It has become the first national standard in the field of spatial planning after the reform of "multi-regulation integration". It clearly relies on the national unified basic information platform of land and space, forms a base map with the data of the third national land survey, superimposes all kinds of spatial planning at all levels, and forms a "one map" of national spatial planning, which serves as the authoritative basis for planning approval, implementation of supervision and full-cycle management, and connection check of special planning "one map".

1. Strengthen the top-level design and support the full-cycle management of planning

Since the development of the standard was started, we have thoroughly studied and implemented General Secretary Xi Jinping's important thought of strengthening the country through the network and the strategic deployment of Digital China, adhered to the new development concept, and compared with the requirements of high-quality development, always regarded the construction of digital, intelligent and intelligent supervision platform as an important content of the construction of spatial planning system, and placed it in a priority position for careful planning. According to the requirements of "scientific, concise and operable", With the goal of integrating spatial planning, implementing "multi-regulation integration" and forming "one plan" and "one blueprint", Focusing on strengthening the full-cycle management of planning, promoting the resolution of outstanding problems such as overlapping conflicts of various planning contents in the past, emphasizing planning preparation over planning implementation, and arbitrarily adjusting and modifying planning, the development of the Code was completed on the basis of summarizing and refining local practices and listening to the opinions of experts in various fields.

Goal-oriented, strengthen standard guidance. Spatial planning "one map" implementation supervision information system (hereinafter referred to as planning "one map" system) is a unified digital technical support for building a five-level and three-class spatial planning system. The Code defines the overall framework of "four levels and two systems", namely, facility layer, data layer, support layer, application layer, standard specification system and safety operation and maintenance system; The relationship with other business systems is clarified; Clarify the operation mechanism of national, provincial, municipal and county integrated construction and inter-departmental sharing and coordination; The data types and requirements as well as the main functional applications are specified; The goal of planning the construction of "one map" system has been established.

Take the problem as the guide and improve the management ability of the whole planning cycle. Planning "one map" system is a powerful means to realize the full cycle management of spatial planning. In order to prevent chaos such as illegal preparation, unauthorized adjustment, illegal permission, construction without approval, and weak supervision, The Notice of the General Office of the Ministry of Natural Resources on Strengthening the Supervision and Management of Spatial Planning (No.27 [2020] of the Ministry of Natural Resources) clearly puts forward the idea of "implementing the whole cycle management of planning", and requires that "one map" of spatial planning should be taken as the basis and support for unifying the control of land and space use, implementing the planning permission of construction projects and strengthening the supervision of planning implementation. Focusing on the whole process of planning preparation, approval, revision and implementation supervision, the Code defines 23 functions in 6 categories of spatial planning, including "one map application", "land spatial analysis and evaluation", "achievement review and management", "implementation supervision", "index model management" and "social public service". Among them, the focus is on strengthening the intelligent preparation, intelligent review and intelligent supervision functions of planning; It also maintains the openness of the analysis and evaluation index model and algorithm, and reserves an interface for adapting to the continuously developing spatial planning compilation management practice.

Service-oriented, pay attention to co-construction, sharing and governance. The planning "one map" system is a digital infrastructure to ensure that governments at all levels, relevant departments and units, and the public participate in land and space governance. Land spatial data is the basic data chassis of digital space. The "Code" requires the planning of a "one map" system to take data as a "cell", strengthen the collection of multi-source data, and empower the intelligent governance of land space; Based on the principle of co-construction and sharing, we will promote data sharing between higher and lower levels and departments in an orderly manner, and encourage cross-departmental and cross-level multi-scenario application development; Set up a social public service module, on the basis of meeting the basic functions of public publicity, opinion consultation, public supervision, etc., focus on docking the high-frequency application scenarios urgently needed by the people, effectively strengthen public participation in planning, and improve the people's sense of acquisition, happiness and security; The purpose is to promote the reshaping of land and space governance mechanism process and the improvement of governance efficiency by relying on the planning "one map" system, to effectively transform data advantages into governance advantages, and to promote the quality change, efficiency change and power change of land and space governance system and governance capacity.

2. Avoid redundant construction and pragmatically improve system functions

The Code requires that all localities should promote the construction of the planning "one map" system based on the principle of economy and starting from actual needs, make full use of the existing information work foundation, avoid duplication of construction, and pay attention to grasp the "four highlights".

Highlight the unified integration of data. The Code requires that basic geographic information and natural resources survey and monitoring results data should be integrated based on the basic information platform of land space, unified surveying and mapping standards and unified classification standards of land use and sea use, so as to form a digital "bottom plate" of land space covering the whole area, three-dimensional and authoritative. On this basis, the data of the overall land and space planning and detailed planning results are collected step by step, and the data of relevant special planning results are superimposed to form a spatial planning "one map". At the same time, efforts should be made to create a safe, open and dynamic digital governance ecology, Make full use of advanced technologies such as Internet of Things, 5G, big data, cloud computing, blockchain and artificial intelligence, Promote the integration and application of land spatial data and comprehensive economic and social data, promote the construction of an authoritative land spatial database with all elements, multiple types, full coverage and real-time update, transform massive data into "data dividends", and consolidate the intelligent planning and construction foundation of "perception, learning, good governance and self-adaptation".

Highlight data co-construction and sharing. The Code requires the development of the check and connection function between the special plan and the "one map", the conformity review of the special plan, the incorporation of the consistent special plan results into the planning "one map" system, and the unification of the land and space use control basis for various development, protection and construction activities. At the same time, it is emphasized to provide data sharing of planning results for other departments. "Co-construction" and "sharing" are two sides of the same coin, which complement each other and promote each other. Co-construction is for a higher level of sharing, and sharing helps to promote a wider range of co-construction. The "Several Opinions" put forward that "all kinds of spatial correlation data should be integrated and a unified national land and space basic information platform should be established." The basic information platform of land and space has accumulated abundant data such as investigation and monitoring, geographical conditions and remote sensing images since the former Ministry of Land and Resources, and is a unified data base to support the spatial governance information systems and applications of various departments including the planning "one map" system. In order to implement the major decision-making arrangements of the CPC Central Committee's "multi-regulation integration" reform to the letter, In the process of promoting the construction of relevant information systems and applications, In strict accordance with the requirements of the central documents, all kinds of spatial correlation data should be integrated into the basic information platform of land and space, providing unified spatial data service support for various applications such as smart cities and urban information models, and resolutely putting an end to going their own way and engaging in another set. Affect the landing of a unified land and space use control system; Avoid repeated financial investment to the greatest extent and give full play to the comprehensive effect of the integration of administrative resources.

Highlight the interconnection between the upper and lower levels. Based on the principle of adapting to local conditions and combining unification and division, the Code requires the country, province, city and county to complete the construction of the planning "one map" system at different levels, so as to realize the connection from top to bottom and ensure that the planning objectives are transmitted step by step. At the same time, all localities are encouraged to expand and develop more refined application scenarios and functional modules that meet local needs, enhance their ability to dynamically perceive urban and rural development trends and intelligently analyze shortcomings of urban and rural spatial governance problems, and promote scientific government decision-making, refined social governance and efficient public services.

Highlight service for the convenience and benefit of the people. The Code encourages the convenience of enterprises and the masses as the starting point and foothold, At the application level, we will develop and improve relevant functional modules that serve the public, enterprises and institutions, and scientific research institutes, unblock communication channels, support scientific research, pool the wisdom of all parties, and promote the construction of people's cities that are suitable for business, living, enjoying, and traveling, so that the people can feel the real improvement in the quality of urban and rural space.

3. Increase the propulsion to ensure that it can be used, used and used easily

The competent departments of natural resources of all provinces (autonomous regions and municipalities) should further unify their thinking with the major decision-making arrangements of the "multi-regulation integration" reform of the CPC Central Committee, Deeply understand the positive significance of the planning "one map" system in promoting the modernization of land and space governance system and governance capacity, improving the level of urban and rural governance, and serving the improvement of people's livelihood, In accordance with the unified work arrangements of the Ministry and the requirements of the "Regulations", we will give full play to our subjective initiative and creativity, accelerate the construction of the system, improve the supporting system rules, and expand rich application services.

Accelerate the implementation progress and "build" the system. The Notice of the General Office of the Ministry of Natural Resources on Carrying out the Construction of "One Map" of Spatial Planning and the Assessment of Current Situation (Natural Resources Office [2019] No.38) clearly requires that cities and counties that have not completed the system construction shall not submit for approval the overall land and space planning first. All localities should pay close attention to the construction of the planning "one map" system according to the Code, ensure that the planning approval at all levels is not affected, and provide timely technical support for the implementation and management of spatial planning.

Open up the whole chain of data collection, integration, sharing and application, and let the data "run". The life of data lies in application. It is necessary to further strengthen the awareness of active service, promote construction with use, make greater efforts in data collection, system integration, linkage from top to bottom and orderly sharing, continuously improve the ability, efficiency and quality of data collection, and continuously improve the level of data analysis and application.

Intensify exploration and innovation, and "build" application scenarios. We should adhere to the perspective of user needs, Grasp the "bull nose" of scene application, work with relevant departments to focus on pain points, blocking points and difficulties in key areas of urban and rural governance and people's livelihood needs, develop application scenarios in a targeted manner, help the construction of smart cities and digital villages, and strive to provide more inclusive, convenient, high-quality and efficient digital services, so that people can better share the fruits of information development.

Improve the supporting rules and standards and "establish" the system. "One map" at the rule level is as important as "one map" at the technical level. With the support of local Party committees and governments, we should do a good job in the implementation of the decision-making arrangements of the CPC Central Committee and the State Council to the letter, improve and perfect the rules and standards for the construction and application of the planning "one map" system, which is conducive to "multi-regulation integration" and co-construction and sharing, and promote business standardization, workflow and management standardization. At the same time, overall development and safety should be coordinated, safety operation and maintenance requirements should be strictly implemented, and a sound management system should be established to ensure data safety.

2025/07/18

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