“双碳”目标的国土空间规划法制响应

Responses of the territorial spatial planning legislation towards ‘dual carbon’ goals

国土空间是碳源碳汇的载体、土地利用变化是第二大碳排放源等因素意味着,国土空间规划法制在实现碳达峰碳中和目标过程中能够发挥重要作用,因此实现“双碳”目标应当充分发挥国土空间规划政策及其立法的保障作用。尽管国家在实现“双碳”目标的顶层设计中对发挥国土空间规划与用途管制的作用已经提出相应要求,但是现行国土空间规划政策却尚未建立相应保障制度体系。国土空间规划法制也因其主干法缺位而无法发挥该法在实现“双碳”目标方面对其他国土空间规划相关立法的统领作用,现行国土空间规划相关专项立法也既未将“双碳”目标纳入其立法目的,亦缺乏与之直接相关的法律制度设计。为此,应抓住国家正在推进国土空间规划立法的有利契机,在确立以法典化思维推动国土空间规划立法的基础上,将“应对气候变化”写入国土空间开发保护法的立法目的条款之中,以充分发挥该法作为国土空间规划法制体系之主干法的作用,并借此将“双碳”要求传导至其他国土空间规划相关立法中。在此基础上,应当从国土空间规划体系和国土空间用途管制两个方面构建实现“双碳”目标的国土空间规划制度保障体系。在国土空间规划体系方面,应重点从强化温室气体清单编制的空间思维、构建国土空间规划的双重碳评制度、建立面向“双碳”目标的国土空间规划体系等方面健全完善相应制度。在国土空间用途管制方面,应重点建立禁止生态系统固碳增汇能力退化制度、建立建设用地减源控碳多维管控制度和构建能体现碳汇价值的生态保护补偿制度等。

The fact that territorial space is the carrier of the carbon source and carbon sink,and land use change is the second largest carbon emission source means that territorial spatial planning(TSP)legislation is vital to realizing the goals of reaching peak carbon emissions and achieving carbon neutrality.Therefore,the TSP policies and their legislation should be given full play for these goals.Although the Chinese central government has put forward requirements for the role of TSP and land use control at the top-level design for these goals,corresponding rules have not yet been established in the current TSP policies.The principal act that plays the leading role in achieving these goals among TSP laws is absent.In addition,these goals have not been integrated into other relevant TSP laws’objective clauses,nor have corresponding rules in these laws been established.Basing on the codified thinking for TSP legislation,we should seize the opportunity that the government is making the Territorial Spatial Development and Protection Act,and integrate these goals into its legislative objective clause,so that the act could play its leading role among the TSP laws and thus establish an example for integrating the goals into other relevant TSP laws.In addition,to establish full TSP rules for these goals,the TSP system rules and the territorial space regulation rules are the two main areas.For the former,we need to establish the carbon inventory system based on the territorial space,the dual carbon impact assessment rule of the TSP,and the low carbon-oriented TSP system.For the latter,we need to establish the anti-degradation of the carbon sink ability rule,the multi-regulation of the construction land rule,and the ecological protection compensation rule that reflects the carbon sink values.