基于人类行为视角的市县国土空间总体规划管控措施编制思路探究

doi:10.31497/zrzyxb.20191018

摘要/Abstract

摘要：

在明确国土空间规划应融合多规,以主体控制线统一管控分区,强化底线约束,实施用途管制的前提下,管控措施编制对国土空间规划管控策略、管控体系的构建与实施至关重要。本研究的目的是探索基于人类行为的市县国土空间总体规划管控措施编制思路。尝试从人类行为视角进一步延伸管控思路,并衔接现行法律法规、部门规章等管控文件作为编制参照,根据人类行为与自然资源、国土空间的作用关系,结合行为开展与分区用途是否匹配,推导相关行为在对应市县国土空间总体规划管控分区的管控措施,以期为实现国土空间规划精准落地和国土空间资源保护与开发精细化管理提供参考。

关键词: 国土空间规划, 市县国土空间总体规划, 空间管控, 人类行为

Abstract:

Since the territorial spatial planning is required to merge multi-planning, unify zoning, and implement baseline regulations by land functions, compilation of spatial regulation is significant for constructing and implementing the strategies and system of spatial regulation. Even though we can unify the zoning of multi-planning through the boundary lines of spatial regulation districts, three issues must be concentrated to coordinate multi-planning regulation and reinforce the binding of territorial spatial master planning regulation to special plans and site plans. First, implement spatial regulations with human behaviors as the objects to improve constraint on negative influences. Second, merge current ordinances into territorial spatial master planning regulations. Third, enhance the guidance and constraint of baseline control model to non-developing and constructing human behaviors. The current researches have studied the definitions and objectives of the territorial spatial planning regulations through legal principles, logics, zoning and policies, and attempted to compile the strategies and systems of the territorial spatial planning regulation as well. Meanwhile, some researches have studied the influence relations among human behaviors, natural resources and territorial space. However, they lack a discussion of the compiling thinking of regulation ordinance from the perspective of human behaviors, which is an indispensable factor supporting the implementation of territorial spatial planning. This research aims at establishing a compiling thinking of the territorial spatial master planning regulation based on the perspective of human behaviors. We coordinate the zoning and regulations between territorial spatial planning regulations and regulation ordinances with human behaviors as carriers, and infer the relevant regulations of territorial spatial master plan according to the impacts caused by human behaviors to ensure the targeted implementation.

Key words: territorial spatial plan, city and county territorial spatial master plan, spatial regulation, human behaviors

赵坤, 许景权, 沈迟. 基于人类行为视角的市县国土空间总体规划管控措施编制思路探究[J]. 自然资源学报, 2019, 34(10): 2234-2243.

ZHAO Kun, XU Jing-quan, SHEN Chi. Research on the compiling thinking of city and county territorial spatial master planning regulations based on the perspective of human behaviors[J]. JOURNAL OF NATURAL RESOURCES, 2019, 34(10): 2234-2243.

图/表 7

表1

图1

表2

表3

人类行为分类"

人类行为	具体行为
保护行为	农业生产无关设施迁出、资源保护无关设施迁出、历史建筑外部修缮、历史建筑原址保护、限制荒芜基本农田、自然资源保护设施建设、退耕还湿与退养还滩、种植保护性树木、污染事故补救与处理、文物遗址保护、历史建筑异地迁移、保持和培肥地力、遗留工矿与废弃地复垦、整治河道、轮作休耕、退耕还林还草、人工回灌地下水、抢救性发掘、监测、维护、清淤疏浚、污染耕地阻控修复、荒漠化草原治理、关闭矿山、禁牧休牧、救火
开发生产建设行为	拆除历史性建筑、基础设施建设、危险与污染品生产和储存设施建设、历史性建筑原址重建、公共服务设施建设、林下种植、使用城市垃圾与污泥作为肥料、人工草地建设、临时设置、临时建设、倾倒污染物、污染物运输、排污管道建设、修建缆车索道、取水与截断水源、拆迁、设置垃圾场、林下养殖、耕作、天然草原改良、全面整地、生产经营、禽畜养殖、喷洒农药、使用化肥、修坟立碑、影视摄制、化工原料与矿物油储备、堆放废弃物、农业生产生活设施建设、狩猎、捕捞、围湖造地、采石、挖沙、砍伐、开垦、排放污水、公共设施维护、地下工程维护维修更新、烧荒、炼山、爆破、采挖植物、放牧、开山、旅游、取土、防灾工程建设、勘察开采矿产、建窑、建房、发展林果业、挖塘养鱼、填埋与排干、打井、灌溉、临时占用
其他行为	驯化繁殖珍稀濒危动植物、保护区范围和功能的改变、诱发地质灾害的活动、拆除非历史性建筑、闲置与拆除污染物处理设施、引进外来物种、科学研究与观测调查、大型群众性活动、考古调查勘探与发掘、打捞船舶、原住民居住、教学实习、参观考察、标本采集、填堵河道废除防洪河堤、砍柴、用火、抢险救灾、防火设施设置、汽车行驶、土地闲置、城市生活垃圾处置、农田闲置荒芜、引进优良草种、刻划与涂污、建筑垃圾处置、飞机飞行

表3

图2

图3

图4

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		六类分区
		刚性管控区	弹性管控区
三类空间	生态空间	生态保护红线区	生态缓冲区
	农业空间	永久基本农田红线区	一般农业区
	城镇空间	城镇开发建设区	城镇开发建设预留区

市县国土空间总体规划管控分区
生态空间		农业空间		城镇空间
生态保护红线区	自然保护区核心区缓冲区饮用水水源一级保护区地质灾害危险区风景名胜核心区地质遗迹一级保护区基本草原（生态保护地区）省级以上保护名录动植物栖息地禁猎区世界文化遗产核心区国家公益林一级保护区 I、II级保护林地国家与地方重要湿地沙化土地封禁保护区洪泛区	永久基本农田红线区	基本农田保护区	城镇开发建设区	城乡居民点建设用地世界文化遗产区域交通设施用地区域公用设施用地特殊用地其他建设用地区域市政走廊用地道路红线和外围控制区防洪保护区文物保护单位文物地下埋藏区城市绿地水功能开发利用区
生态缓冲区	自然保护区实验区水源二级和准保护区蓄滞洪区风景名胜非核心区地质遗迹二三级保护区文物保护单位文物地下埋藏区世界文化自然遗产缓冲区国家公益林二三级保护区 III、IV级保护林地一般湿地森林公园(不与自然保护核心区重叠) 采矿用地与采矿采空区	一般农业区	一般农地区牧业用地村庄建设用地蓄滞洪区水功能开发利用区采矿用地采矿采空区	城镇开发建设预留区	采矿用地采矿采空区城市基础设施用地村庄与集镇建设用地文物保护单位文物地下埋藏区城市绿地蓄滞洪区