可再生能源用地与生态保护法律制度的矛盾与调和——基于国土空间规划体系的视角

Contradiction and Reconciliation between Land Use for Renewable Energy and Legal System of Ecological Protection--Based on the Perspective of Territorial Space Planning System

大力发展可再生能源是实现“双碳”目标的必然选择,但在国土空间利用的互动中,可再生能源用地与生态环境保护法律制度的冲突日益显现。具体表现为可再生能源项目用地与生态保护红线之间的空间冲突,各个部门协调不畅导致的可再生能源审批困境,以及在利益影响下的不当空间分配,形成了影响可再生能源可持续发展的制度掣肘。究其原因,在于对用地起着指导作用的国土空间规划体系内部缺乏基础性法律,规划立法碎片化特征显著,以及外部制度的衔接不畅。未来应当在坚持生态优先原则的基础上,建立起国土空间规划法制与可再生能源规划的内在协同机制,通过“三区三线”制度优化可再生能源用地管制,为可再生能源发展预留一定的建设用地,并加强环境影响评价制度的作用效果,以缓和当前的国土空间利用冲突,促进可再生能源用地规范化、常态化运行。

Vigorously developing renewable energy is the inevitable choice to achieve the goal of double carbon,but in the interaction of territorial space utilization,the conflict between the land use for renewable energy and the legal system of ecological environmental protection has become increasingly apparent.This is manifested by the spatial conflict between the land use for renewable energy projects and the ecological red lines,the difficulties in renewable energy approval caused by poor coordination among various departments,and the improper space allocation influenced by interests,which form the institutional constraints that affect the sustainable development of renewable energy.The reasons include the lack of basic laws in the territorial space planning system which plays a guiding role in land use,the obvious fragmentation of planning legislation,and the poor connection of external systems.In the future,an internal coordination mechanism between the legal system of territorial space planning and the planning of renewable energy should be established on the basis of adhering to the principle of ecological priority,the control of land use for renewable energy should be optimized through the"three zones and three lines"system,certain land for construction use should be reserved for the development of renewable energy,and the effect of environmental impact assessment system should be strengthened to alleviate the current conflict over territorial space utilization and to promote the standardization and normalization of land use for renewable energy.