国土空间规划体系重构语境下“双评价”研究进展与趋势

Research Progress of“Dual Evaluations”in the Restructuring of National Land Use and Spatial Plan

在"绿水青山就是金山银山"的理念下,国土空间规划必须兼顾资源的保护、开发与配置,注重基础性、约束性、综合性和战略性的平衡,在协调保护和发展之间保持刚性与弹性的平衡。"三条控制线"(生态保护红线、永久基本农田、城镇开发边界)的统一划定和管控是国家自然资源部重构国土空间规划体系的重要抓手,开展覆盖全域空间的资源环境承载能力和国土空间开发适宜性评价(即"双评价")则是"三条控制线"划定的技术基础。文章通过系统梳理国内外相关研究,从学术和实践层面分析现行"双评价"在重构国土空间规划体系语境下面临的约束作用不强、指标体系不科学等问题。学术界和自然资源管理部门业已达成新的共识-在新语境下实现从总量调控向空间约束指引转变,更加注重引导形成绿色发展、高质量发展和协调发展。因此,文章进一步聚焦地域特色的"双评价"概念内涵、指标体系、划定方法和传导机制等关键问题,将深化基础研究、固化技术流程、优化技术方法等作为下一步研究的重点方向。

Lucid waters and lush mountains are valuable assets.National land use and spatial plan must balance rigid and flexible measures between resource preservation and development.The control of"three lines"(ecological preservation,permanent prime farmland,urban development boundary)is important in the restructuring of national land use and spatial plan,and also a basis for the"dual evaluations"(environmental carrying capacity evaluation and land use suitability evaluation).The paper analyzes the problems of"dual evaluations"in theory and practice,indicates the agreed transition from general volume control to spatial restriction towards green,high quality,and coordinated development.The paper further focuses on key issues such as conceptual connotation,indices system,delimitation method,transmission mechanism of"dual evaluations"with local characters,and clarifies next step tasks:deepening fundamental research,consolidating technical route,improving technical method.