生态系统服务对国土空间规划体系的理论与实践支撑

Support of ecosystem services for spatial planning theories and practices

空间规划体系改革是推进生态文明建设的重大举措。面向新的国土空间规划体系,如何整合不同空间尺度下的政策,如何协调人类活动并保护生态格局和自然资源,是空间规划的核心问题,亟需吸纳多学科视角和知识加以回答。生态系统服务关联生态系统与人类福祉,是优化国土空间、推动规划决策更加符合生态文明理念的重要工具。本文立足于国土空间规划体系的构建需求,通过文献梳理和理论分析,从多个维度探讨了生态系统服务对空间规划体系构建的支撑作用。首先,对生态系统服务与空间规划价值目标的关联进行了基本判断,明确了生态系统服务不仅是空间规划进行自然资源价值塑造的载体,也是空间规划面向公共福祉的政府选择。其次,针对国家、省级以及市县和乡镇各纵向层级总体规划的功能定位和内容重点,分别剖析了生态系统服务对实现规划的战略性和政策性、协调性和操作性的支撑作用,并从尺度效应视角探讨了其对构建规划协同机制的促进作用。最后,面向"多规合一"的横向衔接需求,提出生态系统服务在培育部门共同价值,协同多元主体利益及改进空间规划技术三方面的重要作用。研究为指导空间规划体系改革提供理论支持和可行路径,丰富深化了生态系统服务在政策制定中的应用。

Spatial planning system reform is a critical strategy to promote ecosystem civilization construction in China. In view of the new spatial planning system, how to coordinate human activities and protect ecological pattern as well as natural resources are critical to the reformation, which urgently requires multi-disciplinary perspectives and knowledge. Ecosystem services bridge the ecosystem and the human well-being, serving as an important tool for land spatial optimization and decision making to better conform with the ecological civilization. In the light of construction demands from the spatial planning system,this research investigates how ecosystem services may provide relevant support from multiple dimensions through intensive literature and theoretical analyses. Firstly, this paper clarifies ecosystem services’ connection with spatial planning in terms of values and goal. Not only are ecosystem services a carrier of spatial planning to shape the value of natural resources, but they are a government choice for spatial planning to promote public welfare as well. Secondly, an indepth analysis of ecosystem services’ support is performed with functions and contents, which vary across planning hierarchy, including the national, provisional, urban, county and village/town levels. To be more specific, insights are gained into ways that ecosystem services may facilitate the strategic and policy-oriented function, the coordinative function, and the operational function, respectively. From a scale-effect perspective, the vertical coordination across planning levels that could be facilitated by ecosystem services is also discussed. Finally,facing the needs of horizontal coordination emphasized by "multiple planning integration",ecosystem services may play important roles in three aspects: fostering common values among different sectors, coordinating multiple stakeholders’ interests, and improving spatial planning technology. Results give theoretical supports and possible paths to direct spatial planning reforms, which may help to expand the application of ecosystem services in policy making.