国土空间规划视角下海陆统筹的挑战与路径

Research on the challenges and realization path of sea-land coordination in territorial spatial planning

通过梳理国内外海陆统筹实践进程和政策演变,界定海陆统筹的基本概念与内涵,在国土空间规划背景下,探讨海陆统筹的关键问题和挑战,并进一步提出海陆统筹的优化路径。研究表明:(1)海陆统筹是一种“流”空间理论思维下面向全域全要素的开发保护战略,通过统一筹划海陆两大系统的资源要素配置、产业联动、生境共治、空间互联和制度互嵌,促进沿海地区协同高效发展,提升生产、生活和生态空间品质。(2)国土空间规划视角下海陆统筹面临的主要问题与挑战包括:海陆空间边界不明晰、海陆经济系统不协调、海陆资源开发与生境保护不统一和海陆空间规划体系不兼容。(3)针对现状问题与挑战,基于空间、经济、生态和管治四个维度,构建全域全要素、分级、分功能的统筹优化路径,以期为沿海地区的海陆协调发展提供借鉴。

Sea-land coordination is an integrated task for optimizing the distribution of industries,space,people,resources,environment and other elements of the two major subsystems of sea and land.It is of great significance to ensure the efficient and coordinated development of coastal areas.With the emergence of the regional network development model emerged,a new round of territorial spatial planning has been gradually implemented.On the one hand,sea-land coordination has been given new connotations.On the other hand,sea-land coordination is facing new problems and challenges.There is an urgent need for an optimized path of territorial spatial planning in China’s coastal areas under the "space of flows" paradigm.The paper combs the practice process and the evolution of related policies of sea-land coordination in coastal areas at home and abroad.And on this basis,the paper clarifies the conceptual connotation of sea-land coordination under the background of the new round of territorial spatial planning.Aiming to tackle the key challenges,the paper proposes a practical path to optimize the sea-land coordination.The study concludes that:(1) China’s coastal areas have experienced a sea-land coordination practice and policy evolution path from "point" to "point-line" to "point-line-surface".Under the background of the new round of territorial spatial planning,the connotation of sea-land coordination is a "space of flows" strategic thinking that develops and protects all elements of the whole territory.Through unified planning of resource element allocation,industrial linkage,habitat co-governance,spatial interconnection and institutional inter-embedding of the two major marine and land systems,the coordinated and efficient development of coastal areas will be promoted,and the quality of production,life and ecological space will be improved.(2) As an important part of territorial spatial planning in coastal areas,sea-land coordination mainly faces four key challenges in practice:unclear sea-land spatial boundaries,uncoordinated sea-land economic systems,ununified sea-land resource development and habitat protection,and unbalanced sea-land spatial planning systems.Compatibility,at the same time,these are also the main cruxes of the disorderly development of space in coastal areas.(3) Practical path for sea-land coordination:clarify the boundary and target positioning of the overall plan;divide the functional space and optimize the spatial layout of the coast;build a systematic ecological protection system to improve the coastal ecological environment;coordinate the allocation of multiple elements to promote the coordinated economic development of coastal areas;improve planning system to ensure integrated management of land and sea.What needs to be pointed out is that any spacerelated mechanism and policy has scales.Undoubtedly,as a marine and land space development and protection strategy,sea-land coordination must have a scale.Sea-land coordination of different spatial scales has different strategic priorities and planning goals.Therefore,the scale conversion thinking should be strengthened when we formulate sea-land coordination policies.Finally,it is expected that the results can provide a reference for the coordinated development of sea and land in coastal areas of China.