快速城市化地区土地利用规划管控建设用地扩张成效评估——以南京市为例

Evaluating the controlling effectiveness of land-use planning on construction land expansion under the rapid urbanization:A case study of Nanjing city

科学评估土地利用总体规划管控建设用地扩张的成效对于规划编制方法和规划管理措施的改进意义重大。本文基于土地利用总体规划的相关指标,从时间、空间、数量和质量等视角构建城镇扩张评估指标体系,选择快速城市化地区南京市为例进行研究。主要结论为:①南京市土地利用总体规划对建设用地扩张强度的管控有一定成效但仍需加强。规划期除2013年以外,其余年份新增城镇工矿用地规模均高于规划年均控制规模,至2015年指标使用进度高达78.83%,规划剩余年限用地需求难以满足;②南京城市空间扩张态势与规划城镇用地空间扩张格局基本吻合。不同方向指标使用进度存在较大的差异性,呈东北和西北部快、南部慢的格局;集中度和合规度指标较好;③评估期内规模控制指数为-0.97,空间溢出指数为0.34,规划对新增城镇工矿用地管控力度偏弱,规划的累积执行效果呈逐年变差的趋势。④本文构建的指标体系可全方位、多角度评估城镇扩张的规划管控成效,对其他地区的规划实施评估有一定的借鉴意义。

Scientific evaluation of land use general planning on controlling the effectiveness of construction land expansion is of great significance for the improvement of planning methods and management measures. Based on the relevant indicators of the land-use general planning,this paper constructs the urban expansion evaluation index system from the perspectives of time, space, quantity and quality, and selects the rapidly urbanized area of Nanjing City as an example. The results indicate that: 1) Land-use general planning of Nanjing has some effect on the control of the expansion of construction land, but it still needs to be strengthened. In addition to 2013, the scale of newly added urban industrial and mining land in the rest of the planning period is higher than that of the planned annual average control. By 2015, the using process of construction land planning indicators reached 78.83%, and it is difficult to meet the land demand for planning the remaining years;2) The expansion of urban construction land in Nanjing is basically consistent with the planned spatial expansion pattern of urban land use.There are large differences in the using process of land indicators in different directions, which are fast in the northeast and northwest but slow in the south. Moreover, the concentration and compliance indicators are better;3) The control index of land use scale during the evaluation period is-0.97, and the spatial spillover index is 0.34. The land use planning is weak under the control of new urban industrial and mining land expansion. Simultaneously, the cumulative implementation effectiveness of land-use general planning shows a deteriorating trend year by year. The comprehensive evaluation index has been 4.39 since 2010, and the cumulative execution effect of the plan shows a worsening tendency. The scientificness of the planning compilation and the binding of planning implementation need to be strengthened. 4) The index system constructed in this paper can evaluate the effectiveness of planning and control of urban expansion in all-round directions and multi-angles, and has certain reference for the evaluation of planning implementation in other regions.