基于自然生态空间用途管制实践的国土空间用途管制思考

当前,针对我国耕地、林地、草地、建设用地等绝大部分空间形态,都出台了有关法律法规,形成了部门分治下相互联系又相互制衡的国土空间管制状态。此种状态在保障支撑国家工业化、城镇化高速发展的同时,也因管制制度自身的分散与割裂,产生了一系列空间冲突和治理矛盾,难以有效解决国土空间上无序发展、功能错配、效率低下、公地悲剧等问题。在借鉴国内外不同国土空间用途管制模式基础上,通过对自然生态空间用途管制试点工作的回顾及总结,结合国家空间治理改革的新要求,提出新时期的国土空间用途管制制度构建,要以山、水、林、田、湖、海等自然资源要素,重要的生态空间、农业空间、城镇空间等为对象,着重建设法律法规保障、国土空间规划、行政管理运行以及国土综合治理四大支撑体系。

Thoughts on Territorial Development Regulation Based on Natural Ecological Spaces

The Chinese government has issued a series of laws and regulations as well as established a series of spatial plans to control the use of cultivated land,forest and grassland,construction land and so on,forming an interconnected and balaneed territorial regulation system.Such a system has guaranteed rapid industrialization and urbanization.However,the decentralization and fragmentation of the regulatory system has given rise to spatial conflicts and governance contradictions,such as disorderly development,mismatched functions,inefficiency,and tragedy of the commons.Based on lessons from Chinese and international spatial regulation models,a literature review on ecological space regulation,and an understanding of the process of national spatial control reform,the paper puts forward the idea of establishing the framework of territorial development regulation in China.The territorial development regulation in the new era should focus on natural resources such as mountains,water,forests,fields,lakes and seas,as well as important ecological space,agricultural space and urban space.It emphasizes the building of four supporting systems,namely legal and regulatory system,territorial space planning system,administrative operations system,and land consolidation and rehabilitation system.