国土空间管控的方法与途径

国土空间管控是对国土空间各类开发保护活动的科学谋划与管理安排,是进行国土空间宏观调控和微观管理的重要政策工具。探讨以地域功能和资源环境承载力为科学基点的国土空间管控体系框架,并以福建省和贵州省六盘水市为例,解析“三区三线”协同划定和国土开发强度并测算两个国土空间管控中技术难点的解决方法,在此基础上,提出以功能管控和参数管控为核心的多尺度、多时序国土空间管控途径。研究发现：① 功能管控以主体功能区划和“三区三线”划定方案为基础,按照四类主体功能定位、三类空间（生态、农业和城镇空间）、六类分区（生态保护红线及一般生态区、永久基本农田及一般农业区、城镇开发边界及城镇预留区）以及N类建设和非建设类用途分层级实施;② 参数管控则以国土开发强度为关键目标参数,实施基于总量-目标和过程-增幅双控的阈值管控,以及基于上限和下限双控的分类型管控途径,旨在实现各类空间内和区域整体的生产、生活、生态“三生”结构均衡协调,促进形成高质量、可持续的国土空间开发保护格局。

Research on methods and approaches of spatial governances

Spatial governance is a scientific planning and management arrangement for various human development and protection activities on territorial space, and it is an important policy tool for the macro-control and micro-fine management of land resources. This study explores the framework of spatial governance system from the perspective of territorial function and resource environmental carrying capacity. Meanwhile, by taking Fujian province and Liupanshui city of Guizhou province as examples, the technical methods of spatial governances for the collaborative delineation of "Three Zones and Three Lines" (Three Zones represent ecological space, agricultural space, and urban space; Three Lines represent ecological conservation redline, permanent capital farmland, and urban development boundary) and territorial development intensity calculation is analyzed. Finally, the multi-scale and multi-time spatial governances approaches for functional control and threshold control is proposed: (1) The function control approach is based on the major function zoning and the "Three Zones and Three Lines" governance map, according to four types of major function orientation, three types of territorial spaces (including ecology, agriculture and urban space), six types of zoning (including red lines for ecological protection and general ecological area, permanent basic farmland and general agricultural area, urban development boundary and urban reserved area) and "N" types of construction and non-construction land use. (2) Based on the territorial development intensity (TDI), the threshold control approach is implementing the "total quantity & target" and "processes & increasing range" dual control, and upper and lower limits dual control. Through the comprehensive approaches of spatial governances, it is expected to achieve a balanced and coordinated "production-life-ecology" structure within and across all types of territorial space, and shape a high-quality and sustainable regional development and protection pattern.