基于试点经验的一般生态空间认知及其用途管制框架初探

A Preliminary Study on the Cognition of General Ecological Space and Its Use Control Framework Based on Nationwide Pilot Experience

研究目的:基于自然生态空间用途管制试点成果,形成对“一般生态空间”的基本认知,通过梳理“三区三线”落地后面临的新困境,探索构建一般生态空间用途管制框架。研究方法:理论分析法和归纳演绎法。研究结果:(1)一般生态空间位于自然生态空间范围,起到生态保护红线以外“缓冲区”的作用,其结构、格局和功能表现出干预性、破碎化和复合型特征;(2)一般生态空间在“三区三线”落地实施过程中将面临管制规则粗放、模式扁平、机制僵化等新困境;(3)结合“两统一”职责,围绕“法律基础—基本原则—实施路径”三方面梳理了一般生态空间用途管制框架的构建理念,提出了面向空间关系的延展性、因时因地制宜的精细化、践行两山理论的转向式三点创新视角。研究结论:本文首次界定了国内一般生态空间的内涵,但当前“三线”之外区域的管制思路并不明朗,应通过对相关政策的动态跟踪、反馈和调整,建立更综合更立体更弹性的管控模式。

The purposes of this study are to develop a basic cognition of“general ecological space”(GES)based on the results of the pilot project on the control of natural ecological space use,and to explore the use control framework of GES by sorting out the new challenges after the implementation of the“three zones and three lines”.The research methods include theoretical analysis and inductive deduction.The research results show that:1)GES is located within the natural ecological space and plays the role of a buffer zone beyond the ecological protection red line,and its structure and functions are more complex.2)GES faces new challenges in terms of extensive regulation,flat pattern and rigid mechanism during the implementation process of“three-zones and three-lines”.3)Combined with the responsibility of“two unification”,this paper clarifies the construction concept of the GES use control framework,including legal basis,fundamental principles and implementation path;then puts forward the innovative perspective of regulation rule making.In conclusion,the concept of GES in China is defined for the first time,but the initial research of its use control shows that the current control ideology of the area beyond the“three lines”is still unclear,and a more comprehensive,three-dimensional and flexible control model should be established through the dynamic tracking,feedback and adjustment of relevant policies.