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SpatialPlanningSystemofNationalTerritoryinJapan,ChinaandKorea日本、中華人民共和國(guó)和韓國(guó)國(guó)土空間規(guī)劃體系KyungrockYE,Jun-huaZHANG,TakeshiKINOSHITA,Xing-yanWANGAbstract:ThisstudyconductedthenationalterritoryplanningsystemofJapan,ChinaandKorea,onapremisetodiscusspossibilityofintegratedspatialplanningofEasternAsia.Thepurposeofthisstudyistoarrangemajorspatialplansofthreecountriesaccordingtoclassificationofurbanandnon-urbanarea,andtoclarifyingroleofeachspatialplan.。文摘:本研究是在進(jìn)行中華人民共和國(guó)、日本、韓國(guó)國(guó)土規(guī)劃體系前提下,探討整個(gè)亞洲東部綜合空間規(guī)劃也許性。本研究目是依照都市區(qū)域和非都市區(qū)域分類(lèi),明確大空間籌劃下三個(gè)國(guó)家在規(guī)劃中所扮演角色。Asaresult,Korea,thesmallestcountryamongthreecountries,hasonesystemonlanduse,developmentandconservation,consideringwholenationalterritorytobeonecityplanningarea,andaroleandrelationofeachspatialplaniscomparativelyclear.Ontheotherhand,China,thelargestcountryamongthreecountries,althougharoleandrelationofeachspatialplanareclearinurbanarea,ageneralrecognitionfornecessityofnon-urbanareaplanningisweak.IncaseofJapan,thecharacteristicsthatthespatialplanningsystemisconsistedonthedivisionintourbanareaandnon-urbanarea,isverysimilartoChina,andthereishardlyrelationbetweenthesetwokindsofspatialplanning.最后,作為最小國(guó)家韓國(guó),已擁有一種針對(duì)土地使用、發(fā)展與保護(hù)體系,它把整個(gè)國(guó)家領(lǐng)土是一種都市規(guī)劃區(qū)考慮,每個(gè)空間規(guī)劃角色和關(guān)系較為清晰。另一方面,作為最大國(guó)家中華人民共和國(guó),盡管市區(qū)空間規(guī)劃是很明確,但人們對(duì)非都市空間規(guī)劃注重限度都非常薄弱。在日本,空間規(guī)劃系統(tǒng)對(duì)都市區(qū)域和非都市地區(qū)劃分原則跟中華人民共和國(guó)是非常相似,這兩種類(lèi)型空間規(guī)劃幾乎沒(méi)有必然關(guān)系。Keywords:Nationalterritoryplan;Japan;China;Korea;Spatialplanning;EasternAsiaCommunity.核心詞:國(guó)土規(guī)劃;日本、中華人民共和國(guó)、韓國(guó)、空間規(guī)劃、東亞共同體。RecentlyitisfrequentlydiscussedontheEasternAsiaCommunity.Thisisstillmainlyfocusedontheeconomy,butinenvironmentalaspectwealsohavesomecommonseriousproblems,e.g.sustainabledevelopment,bio-diversity,outstandinglandscape/natureconservation,balanceddevelopmentoftownandcountry,culturalassetsconservation/utilizationandseveralenvironmentalproblems.Inordertosettlethesesubjects,itisimportantnotonlytochallengebyeachcountrybutalsotoprepareacommonframeworkforcomprehensivespatialplanningcoveringwholeeasternAsia..近來(lái)東亞共同體經(jīng)常被討論,重要關(guān)注依然是經(jīng)濟(jì)問(wèn)題,但在環(huán)保方面咱們也有某些常用嚴(yán)重問(wèn)題需要解決,如可持續(xù)發(fā)展、生物多樣性、先進(jìn)景觀、自然保護(hù)、城鄉(xiāng)協(xié)調(diào)發(fā)展、文化遺產(chǎn)保護(hù)、環(huán)境問(wèn)題等。解決這些問(wèn)題,重要不但是對(duì)每個(gè)國(guó)家挑戰(zhàn),而是需要準(zhǔn)備一種常用全面覆蓋整個(gè)亞洲空間規(guī)劃框架。ThisstudywasdonetoclarifythesimilaritiesanddifferencesofnationalterritoryplanningsystemofJapan,ChinaandKoreaasafirststeptodiscussonthesubjectsandpossibilitiesofcomprehensiveEasternAsianspatialplanning.UntilnowthenationalterritoryplanningsystemofJapanandKoreahavealreadybeenstudied,butthecomparativestudybetweenthreecountriesincludingChinafromtheviewpointofspatialplanninghasneverseenbefore.Weusedmainlyrelatedliteraturesonplanningsystemandgovernment'sofficialwebsitesofeachcountrytoclarifythepurposesofthisstudy.Andweclassifiedeachcountry'smajorspatialplansintofourcategories,national,regional,urbanareaandnon-urbanarea,anddiscussedontheverticalandhorizontalrelationbetweenthem.本研究之目:第一步是明確日本、中華人民共和國(guó)和韓國(guó)國(guó)土規(guī)劃體系異同,討論綜合東亞空間規(guī)劃課題和也許性。迄今為止,日本和韓國(guó)國(guó)土規(guī)劃體系已經(jīng)進(jìn)行了比較研究階段,但從空間規(guī)劃角度對(duì)三個(gè)國(guó)家比較研究尚未進(jìn)行。咱們重要在每一種國(guó)家規(guī)劃系統(tǒng)有關(guān)文獻(xiàn)、政府官方網(wǎng)站上闡明了本篇研究目。咱們按照整個(gè)大空間規(guī)劃把每個(gè)國(guó)家分為國(guó)家、地區(qū)、都市區(qū)域和非都市區(qū)域四類(lèi),討論垂直和水平關(guān)系。1NationalTerritoryPlanningSystemofJapanTheComprehensiveNationalDevelopmentAct(1950),LandUsePlanningAct(1974)andCityPlanningAct(1968)supportJapanesemajorspatialplanning(Table1).TheseareallunderthejurisdictionoftheMinistryofLand,infrastructureandTransport.TheCNDPprovidestong-rangevisionsonnation-widelanduse,developmentandconservation,socialoverheadcapital,andatrafficpolicy.Accordingthisplan,theCPDPandMLParetobeprepared.ThePlansprovidedbyLandUsePlanningActincludesNLPandPLPontheperspectiveofeffectivenationallanduseandLUMPthatclassifiedprefecturallanduseintofiveareas(town,agriculture,forest,naturalparkandnaturalconservationarea).Fig.1showsthattherearemaintwospatialplansbytwoactsatnationalandregionallevel,buttherelationandarolesharingbetweentheactsandplans.Representativeplansofurbanareaandnon-urbanareaaretheMLPbyLandUsePlanningActandtheCPbyCityPlanningAct,buttherelationbetweenthetwoisnotclearandactuallytheonlyCPplaysakeyroletocontrollanduse.itisclearthattheJapanesenationalterritoryplanningisdividedintoNLPandCPandtheroleofregionalplanningisrelativelysmall.Thereforetheareathatiscloselycoveredbymainthreeactsisonly'cityplanningarea',theothernon-urbanareaisdependedonotherrelatedacts(Fig.1).TheareaclassificationbyLUMPsupportscompetentministriesandacts,andseparateplansareappliedtoeacharea.Inotherwords,onemaysaythattheJapanesenationalterritoryplanningstressestheurbanareas'plansandinnon-urbanareasthereisnocomprehensiveplanthatunifiestherelatedplans(Fig.1)andaframe/roleofregionalplanningisrelativelyweak.一、日本國(guó)土規(guī)劃系統(tǒng)綜合國(guó)家發(fā)展行動(dòng)(1950年)、土地運(yùn)用總體規(guī)劃(1974年)和都市規(guī)劃條例(1968)都支持日本重要空間規(guī)劃(表1)。這些都是其管轄下土地、基本設(shè)施、運(yùn)送。CNDP提供在全國(guó)土地運(yùn)用、保護(hù)和發(fā)展、社會(huì)資本,交通政策概念規(guī)劃。依照該規(guī)劃,CPDP和MLP已經(jīng)開(kāi)始準(zhǔn)備。這個(gè)能提供土地運(yùn)用總體規(guī)劃籌劃涉及對(duì)國(guó)家土地運(yùn)用分類(lèi)PLP和NLP和對(duì)縣級(jí)土地運(yùn)用提成五類(lèi)(鎮(zhèn)、農(nóng)、林、天然公園和自然保護(hù)區(qū))LUMP。圖1顯示了兩個(gè)在國(guó)家和地區(qū)水平上重要空間籌劃行為,但這種關(guān)系和角色被行為和籌劃分享,市區(qū)和非市區(qū)域代表籌劃是由土地運(yùn)用總體規(guī)劃M(mǎn)LP和都市規(guī)劃CP,但兩者之間關(guān)系尚不清晰,其實(shí)只有CP扮演著核心角色來(lái)控制土地使用。很明顯,日本國(guó)土規(guī)劃分為NLP和CP,而區(qū)域規(guī)劃影響是較小。因而,市區(qū)重要由三個(gè)行為控制,而其她非市區(qū)是依托其他有關(guān)行為。LUMP對(duì)這個(gè)地區(qū)別類(lèi)支持主管部門(mén)和行為,并單獨(dú)應(yīng)用于各區(qū)域籌劃中。換句話說(shuō),日本國(guó)土規(guī)劃強(qiáng)調(diào)都市地區(qū)籌劃和非地區(qū)并沒(méi)有全面結(jié)合有關(guān)籌劃,區(qū)域規(guī)劃還相對(duì)薄弱。2.NationalTerritoryPlanningSystemofChinaTheLandManagementAct(1986),CityPlanningAct(1989),andtheVillageandCountryPlanningRegulations(1993)supportChinesemajorspatialplanning.ThecompetentministriesareclassifiedintotheMinistryofLandandResources,theMinistryofConstruction,andtheNationalDevelopmentandReformCommission.UndertheLandManagementActtheadministrativeauthorities(upperlevelofprefecture)preparetheCNLUPtoclassifythefuturelanduseandcontrol,toregulatenetvolumeofconstructionsite,andtoprotectfarmlands.UndertheCityPlanningAct,theNTCPprovidesalong-rangehierarchyofcities'populationsizeandcityplanningareainthewholenationalterritoryfromthecomprehensivestrategicviewpointofeconomicalandsocialdevelopmentinharmonywithresourcesandecologicalenvironment.TheCPisconstitutedwithComP(indicatesthefuturedevelopmentdirectionandlanduseofadministrativeunitsupperlevelofprefecture),DP(whichispreparedinthedistrictarea),andDeP(providesotherdetailitems).TheVCPprovidesvillageandcountry'sdevelopmentdirectionandplacementplanofproductionandlifefacilitiessuchastransport,disasterprevention,commerceandgreening,etc.,enhancinglocalidentity.TheRPisawideareaplanningofaneconomiccommunitycoveringpluraladministrativeunitstoharmonizeeconomicaldevelopmentandresourcesmanagementlikeas'TheYangtzeRiverDeltaAreaPlan'.Thisplanhaspossibilitytoplayaroleofwidearea(theoreticallywholenationalarea)adjustmentbeyondawallbetweenadministrativeareastargetingaplanofcitysize,transportnetworking,utilization,developmentandconservationofresources,etc.,butitissaidthepowerandmanagementbaseasaspatialplanarerelativelyweak。BythewayintheletterofeachactitisprescribedthattheVCPhastoadjustitselftoCPandCLUP,andtheCFhastoadjustitselftotheCLUPandRP,butactuallyfalsesettinghasoccurredfrequentlybecauseofadifficultiesofplanningadjustmentbetweendifferentministriesandunclearshareoftherolebetweentheseplans.Ontheotherhand,theadministrativeauthoritiesupperlevelofprefecturehasaresponsibilitytoprepareeachplan,thusitissaidthatthereismuchrepetitionofaplan,however,thealmostwholenationalterritory(bothurbanareasandnon-urbanareas)iscloselycoveredbytheseCPandVCP(Table1).Asaresult,inthenationalterritory.planningtherearesimilarplanningconceptsasmuchasthenumberofcompetentministries,possibilitytobecomearepetitionplanishigh.Thisplanningsystemmakecoveringbothtownandcountryareahasalreadybeenestablished,buteachplanistendtobeboundtoanadministrativeauthority,thereforeageneralideasuchasRPisneedtospread,thatcanadjustthemattersinwideareacoveringsomeprovincesandinmediumareacoveringsomecitiesandprefectures.二、中華人民共和國(guó)國(guó)土規(guī)劃體系土地管理行為(1986)、都市規(guī)劃條例(1989)、村莊和國(guó)家規(guī)劃法規(guī)(1993)支持中華人民共和國(guó)重要空間規(guī)劃。主管部門(mén)分為國(guó)土資源部、建設(shè)部、國(guó)家發(fā)展和改革委員會(huì)。依照土地管理法行政當(dāng)局(縣上級(jí))擬訂CNLUP分類(lèi)將來(lái)土地運(yùn)用和控制、規(guī)范施工現(xiàn)場(chǎng)凈體積、保護(hù)農(nóng)田。依照都市規(guī)劃法,NTCP提供了都市遠(yuǎn)期層次人口規(guī)模,從整個(gè)都市綜合經(jīng)濟(jì)、社會(huì)與資源和生態(tài)環(huán)境協(xié)調(diào)發(fā)展戰(zhàn)略高度規(guī)劃國(guó)土面積。CP是由ComP(指出此后發(fā)展方向和土地使用單位行政上級(jí)縣),DP(這是該區(qū)面積編寫(xiě)),和DEP(提供其她細(xì)節(jié)項(xiàng)目)。VCP提供鄉(xiāng)村和國(guó)家發(fā)展方向和安頓籌劃生產(chǎn)和生活設(shè)施,如交通,災(zāi)害防止,商業(yè)和綠化等,加強(qiáng)地方認(rèn)同。RP是一種涵蓋了經(jīng)濟(jì)社會(huì)廣泛多元行政區(qū)劃區(qū)規(guī)劃,協(xié)調(diào)經(jīng)濟(jì)發(fā)展和資源管理,就好像'長(zhǎng)江三角洲地區(qū)籌劃'。這個(gè)籌劃也許性,以發(fā)揮廣域(理論上整個(gè)國(guó)民經(jīng)濟(jì)領(lǐng)域中作用)超過(guò)目的之間都市規(guī)模,交通網(wǎng)絡(luò),運(yùn)用、開(kāi)發(fā)和資源保護(hù)等規(guī)劃調(diào)節(jié)行政區(qū)域,但作為一種空間籌劃,力度和管理基本相對(duì)薄弱。此外,每一種字母方式行為是受到規(guī)定,VCP必要調(diào)節(jié)自己CP和CLUP,并且CF要調(diào)節(jié)自己CLUP和RP,但事實(shí)上錯(cuò)誤經(jīng)常發(fā)生,由于經(jīng)常謀劃困難調(diào)節(jié)各部委之間和它們之間共享籌劃作用尚不清晰。另一方面,行政當(dāng)局縣上層有責(zé)任準(zhǔn)備每個(gè)籌劃,因而有人說(shuō),有諸多重復(fù)籌劃,但是,幾乎整個(gè)國(guó)家領(lǐng)土(涉及都市地區(qū)和非都市地區(qū))密切受這些CP和VCP影響(表1)。因而,在國(guó)家國(guó)土規(guī)劃上有類(lèi)似規(guī)劃概念跟主管部門(mén)數(shù)目同樣多,從而重復(fù)籌劃也變得非常高。這個(gè)系統(tǒng)使規(guī)劃覆蓋都市和農(nóng)村地區(qū)都已經(jīng)建立,但每個(gè)籌劃往往被綁定到一種行政機(jī)關(guān),因而,一種總體思路如RP是發(fā)揚(yáng),可以調(diào)節(jié)涉及某些省在內(nèi)大區(qū)域,和涉及一種區(qū)域及市區(qū)域。3NationalTerritoryPlanningSystemofKoreaTheKoreansystemissimplerthantheJapaneseandtheChineseone,reflectingsmallnationalterritory.MajorspatialplanningrelatedactsaretheFrameworkActofNationalTerritory()andtheActonPlanningandUseofNationalTerritory(),andthecompetentauthorityistheMinistryofConstructionandTransportonly.Plansprovidedbythesetwoactscompletelyshareinresponsibility.TheCNTPprovidesfundamentalandlong-rangepoliciesonthenation/region/municipality'sdevelopmentdirectionandfutureimage,utilizationandmanagementoflandresources,disasterpreventionandenvironmentalconservationandimprovement,etc.TheRP(providedbytheActonPlanningandUseofNationalTerritory),whichiscomprehensiveplancoveringwidearea(thatissetifnecessary)toextendtoseveralcitiesandcounties,aimstoshareinresponsibilityofurbanfunctionsatwidescale,openspaceplanning,environmentalplanning,andlandscapeplanning.TheCP(coveringurbanareas)andtheCoP(coveringnon-urbanofareas)arethelong-rangecomprehensivespatialplanning,andbothplansconsistofamasterplanandamanagementplan.TheCMPandCOMPprovidedirectionandaimsoflanduse,developmentandconservationandtheCMaFandtheCoMaPconductamanagementofthem.ConsistencybetweenplansishighbecauseofaStrlcttopandbottomrelation.TherelationbetweentheCoPandotherrelatedacts(byotherministries)areclear,too.InadditiontheCPandCoPareinthehigherpositionofspatialplanningsystemincompetentadministrativearea,andtheyfunctionasanintegratedplanninginacityoracounty.AsasmallcountryKorea,toapplyingdifferentplanningsystemtotownsideandcountrysideratherbroughtanenvironmentorlandscapeimpoverishmentinnon-urbanareas,thusitbecamepossibletoapplytechniqueofcityplanningtoanon-urbanareaunderestablishmentofnewactsof.AsaresulttheKoreanplanningsystembecamesimplestructure,butthestrictrelationBetweenahigherplanandalowerplanmaybringstandardizationandstiffeningofplanning.thereforeitbecomebasicsubjectshowtosurpassthesimplewayofthinkingofcityplanningsystem,howtoapplyotherrelatedplansandlocalandnationalidentityintoplans,andhowtointegrate/useeffectivelyministries'viewpoints.三、韓國(guó)國(guó)土規(guī)劃體系韓國(guó)系統(tǒng)要比日本和中華人民共和國(guó)簡(jiǎn)樸些,反映了小國(guó)家領(lǐng)土。重要空間規(guī)劃關(guān)于行為,是國(guó)家領(lǐng)土()和規(guī)劃與國(guó)家領(lǐng)土(),而主管機(jī)關(guān)僅僅是建筑部和交通運(yùn)送部。這兩個(gè)籌劃所提供行為完全分擔(dān)責(zé)任。CNTP運(yùn)用土地資源、防止災(zāi)害和環(huán)保和改進(jìn)等,對(duì)國(guó)家、地區(qū)、直轄市發(fā)展方向和將來(lái)形象提供主線和長(zhǎng)遠(yuǎn)政策,RP(由規(guī)劃和使用法規(guī)定管理國(guó)土)是個(gè)全面籌劃,涵蓋廣泛區(qū)域(如果有必要即設(shè)立)擴(kuò)大到好幾種都市和縣,旨在大規(guī)模地在都市功能分擔(dān)責(zé)任,開(kāi)放空間規(guī)劃、環(huán)境規(guī)劃、景觀規(guī)劃。CP(涉及市區(qū))和COP(涉及非地區(qū)都市)是長(zhǎng)期提供全面空間規(guī)劃,兩個(gè)籌劃涉及一種總體規(guī)劃和管理籌劃.CMP和COMP提供指引和土地運(yùn)用,開(kāi)發(fā)和保護(hù)以及CMaF和COMAP是她們目的進(jìn)行管理?;I劃之間一致性,就像頂部和底部關(guān)系。COP和其她部委關(guān)系是明確。此外,CP和CoP作為主管行政區(qū)域空間規(guī)劃體系較高位置對(duì)一種都市甚至國(guó)家進(jìn)行綜合規(guī)劃。韓國(guó)作為一種小國(guó),對(duì)城鄉(xiāng)和農(nóng)村采用不同規(guī)劃制度,以帶來(lái)非都市地區(qū)環(huán)境或景觀發(fā)展,因而它使得運(yùn)用都市規(guī)劃下建立新行為非市區(qū)成為也許。因而,韓國(guó)籌劃體制成為構(gòu)造簡(jiǎn)樸,但嚴(yán)格意義上,較高和較低籌劃也許帶來(lái)原則化,因而基本問(wèn)題是如何超越了都市規(guī)劃體系,思考如何合用其她有關(guān)籌劃和地方、國(guó)家籌劃,以及如何簡(jiǎn)樸辦法整合、使用部委觀點(diǎn)。4Conclusions(1)Actsandcompetentministriesrelatednationalterritoryplan:OnemaysaythatJapanandChinahavesimilarplanningsystem,as.showing(Fig.l)whenthereispluralactsthatsupportnationalterritoryplan,therelationbetweenplansandaroleofeachministryshouldbemadeclear.(2)Verticalrelationofplans:ChinaandKoreahascomparativelyclearverticalrelationbetweenplansbecausetheybothhavestrongnaturetotransmitplanningpolicyfromtoptobottom.However,aneachplanofChinawasstrictlyboundtoadministrativeunitandinJapantheroleofsemi-wideareaplanningisrelativelyweak.Inthefuture,settingwide-areaplanningbeyondsingleadministrativeunitwouldbepossibletoconnecteffectivelythehigherplansandthelowerplans,accordingtoeconomic,culturalandnaturalconditions.(3)Spatialareacoveredbynationalterritoryplan:InJapantheareacoveredbyacertaincomprehensiveplanisactuallylimitedtocityplanningarea(CPA).Spatialplanningdoesnotcoveralmostnon-CPAarea;thereforecomprehensiveenvironmentalorlandscapeimprovementfromaviewpointofmulti-directionsispossiblydifficult.(4)Weightofplanning:WemightsayJapanputstheweightofplanningtourbanarea,andKorea,theoretically,putstheweighttobothurbanandruralareaequally.InChina,nowadaystheweightofplanningisparticularlyontileurbanareawithhigheconomicgrowth.Howeveritisimportanttaskstoestablishnon-urbanarea'scomprehensiveplanninginthreecountries,inotherwords,toconservetheirownnature,cultureandlandscapesofnon-urbanarea,strengtheninglocalidentityandoriginality.Throughthisstudy,wecanreferthatthereisabigrelationbetweenthesizeofnationalterritoryandacharacteroftheplanningsystem.Widernationalterritoryhasmoremultistageadministrativeunit,andthepl
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