国土空间规划框架下“生态券”核算方法与交易机制——以京津冀地区为例

Accounting method and trading mechanism of "Ecological land Voucher" under the framework of territory spatial planning:A case study of Beijing-Tianjin-Hebei Region

促进生态产品的价值实现是国土空间规划难以回避且亟需探索解决的问题。厘清国土空间规划框架下耕地占补平衡向生态占补平衡转型的制度演进逻辑,尝试构建基于“生态券”的生态产品市场化交易机制,并以京津冀地区为例开展实证。结果显示:(1)国土空间规划为核定“生态券”提供了制度基础,“生态券”交易可弥补因国土空间规划而导致的土地发展权的损失。(2)“生态券”是区域生态用地保护量在基准年和目标年的变化量,提出以县级地方政府为交易主体、由国家年度计划管理确定交易总量、采取政府确定底价和市场定价相结合的交易机制。(3)将生态用地类型确定为林地、草地、湿地与水域四类,使用区域自然条件、GDP和人口密度校正后计算的“标准林”面积核算该区域“生态券”。(4)2010—2018年,京津冀“生态券”需求量为142.02×10^(4)hm^(2),主要为海淀、西青、津南、武清、昌黎等地;供应量为74.73×10^(4)hm^(2),主要来自房山、赵县、兴隆、隆化、承德等地。研究结果为生态产品价值实现提供了新思路和相对简单易操作的方法,可以为国土空间规划及区域间共同富裕提供理论与方法借鉴。

The value realization of ecological products is a tough issue that needs to be solved urgently in territory spatial planning. There are many ways and means to realize the value of ecological products. Among them, the regional development unfairness, caused by the initial allocation of land development rights in different regions by territory spatial planning, should be partially corrected by ecological land compensation. This paper clarifies the institutional transformation of occupation and compensation balance from cultivated land to ecological land under the framework of territory spatial planning, tries to build a market-oriented trading mechanism of ecological products based on "Ecological Land Voucher", and takes Beijing-Tianjin-Hebei as an example. The results show that:(1) Territory spatial planning provides an institutional basis for the approval of "Ecological Land Vouchers". The transaction is to make up for the loss of land development right caused by territory spatial planning.(2) The difference between the amount of regional ecological land protection in the base year and the target year is defined as "Ecological Land Vouchers". It is proposed that the county-level local governments shall be the main body of the transaction, and the total amount of transactions shall be determined by the national annual plan management. The combination of the reserve price determined by the government and the market transaction pricing shall be adopted.(3) The ecological land is determined into four categories: forest land, grassland, wetland and water area. The area of "standard forest", after the changes of regional natural conditions, GDP and population density, is used to calculate the transaction volume of regional "Ecological Land Vouchers".(4) The case application results of the Beijing-Tianjin-Hebei Urban Agglomeration show that, from 2010 to 2018, the total demand for "Ecological land Voucher" in the Beijing-Tianjin-Hebei Region was 1420200 hm^(2), mainly in Haidian, Xiqing, Jinnan, Wuqing, and Changli. The total supply of "Ecological land Voucher" is 747300 hm^(2), mainly from Fangshan, Zhaoxian, Xinglong, Longhua,and Chengde. The research provides new ideas and relatively easy methods for the value realization of ecological products, and tries to help provide theoretical and technical support for the implementation of territory spatial planning and the protection and utilization of land resources for common prosperity.