Editor's Note:Recently, the fourth meeting of the Committee for Comprehensively Deepening Reform focused on the task of land and space planning, and proposed to coordinate the regional economic layout and land space utilization, based on the functional positioning and resource endowment of various places, refine the land management policy unit, and improve the level of resource development and utilization. Secondly, it is emphasized that it is necessary to strictly implement the boundaries of land and space control, strictly abide by the three control lines, and strengthen project supervision.
OneThe importance of rural territorial spatial planning
As an important starting point for the implementation of the rural revitalization strategy, territorial spatial planning is an important means to promote the transformation and upgrading of rural industries, improve the capacity of rural comprehensive supporting services, and promote rural economic and social development. Rural land spatial planning is conducive to clarifying the idea of village development, clarifying the priorities of various tasks of rural revitalization, and ensuring that development is followed and construction is grasped. Secondly, it is conducive to the overall arrangement of various resources, concentration of strength, highlighting key points, and speeding up the completion of rural development shortcomings. In addition, through scientific design and reasonable layout, the ecological space of rural production and life can be further optimized, and urban infrastructure and public services can be guided to extend to rural areas, so as to promote the integrated development of urban and rural areas.
2. Problems faced by rural territorial spatial planning
Under the territorial spatial planning system, rural planning is given multiple goals, but in practice, due to the timing of preparation, the conflict of interests of the main body, and the unclear (in previous years) rural planning system, rural planning has fallen into various difficulties.
There is a lack of integration and coordination of control objects
Before territorial spatial planning, there were significant differences in the control objects and scopes, technical standards and data bases of various types of rural planning at all levels, resulting in overlapping, omissions and contradictions in the management and control between them, and it was impossible to complete the effective control of all elements of rural space. For example, village distribution planning is the overall layout of construction land such as rural settlements, focusing on the construction of the system. Villagers' housing planning pays more attention to housing construction space; Agricultural layout planning takes the layout of agricultural space as the main content; Rural land use planning attaches more importance to land use control and index control, and all kinds of rural planning at all levels only focus on a part of the rural space or elements, and lack the overall planning of regional functional structure, facility system and rural landscape.
The rural structural system is not coordinated
The governance logic of urban-rural spatial heterogeneity leads to the separation of urban and rural management and control systems, and it is difficult to match the complexity of the rural spatial system with the power transmitted by the planning system. At the same time, the difficulty in the overall planning of different land types leads to the fragmentation of rural regional space and land, and the one-way flow of a large number of rural population to cities leads to the hollowing out of villages.
In essence, the rapid expansion of rural settlements and urbanization have led to the inefficiency of the organization of rural spatial settlement systems. The imperfect spatial structure of villages and towns, the unclear subject of spatial rights and responsibilities, the disorderly organization of the settlement system, and the imperfect structure of the authority system lead to the conflict between the top-down implementation of spatial use control and the demands of rural revitalization and development. The marginalization of production space utilization, the hollowing out of living space organization, and the fouling of ecological space have brought structural obstacles to rural revitalization. The structural differences in the rules of urban and rural management and control hinder the free flow of development factors in the urban and rural systems.
Planning is relatively independent and lacks overall coordination
The progress and content of the preparation of rural planning are relatively independent, and it is difficult to achieve synchronization or unification across administrative boundaries, and it is impossible to carry out timely and effective overall planning and coordination within the larger area of rural areas, which in turn leads to problems such as insufficient focus of industrial development, weak pertinence of facilities, low utilization rate and waste of resources. For example, the layout of industrial projects is too simple.
1. Dispersion; overallocation, duplication or divergent location of elements such as public service facilities and municipal disaster prevention facilities; Connectivity facilities such as road traffic do not correspond, and are misaligned.
The preparation period is long and the budget is large
The development momentum and needs of different villages are quite different, and the original village planning is usually prepared, approved and implemented in batches according to temporary needs, and there is a lack of forward-looking layout and overall planning awareness, resulting in the lag of the comprehensive village planning and the long overall cycle, and it is difficult for the planning to play its due role in the region in a timely manner.
At the same time, the cost of planning with a single village as a unit is relatively high, and if the local attention is insufficient or there is a lack of stable financial guarantee, it is easy to have the situation of not compiling or complying with part of the village planning, which ultimately leads to the lack of effective planning guidance for the construction of such villages.
There is an imbalance in the hierarchy and a lack of effective cohesion
The positioning of various plans is unclear, the level is unbalanced, it is difficult to echo with the power of counties, towns and villages, and there is a lack of effective connection between overall planning, detailed planning and special planning. On the one hand, the village layout plan clarifies the positioning of various villages, decomposes the scale of construction land, and plays the role of overall planning to a certain extent, but it is not well integrated with the special planning content such as agricultural layout and ecological space, resulting in incomplete planning content and difficult to effectively guide the preparation of detailed planning at the lower level.
On the other hand, some plans have reached the depth of detailed planning, such as villagers' housing planning and rural environmental improvement planning, but these plans focus on project construction and are easy to ignore the connection with village distribution planning and rural land use planning, resulting in the lack of support for land indicators and related supporting requirements for the project, which is difficult to implement effectively.
3. Rural territorial spatial planning strategies
With the rapid development of social economy in recent years, in the process of carrying out rural land spatial planning, based on the social, ecological environment and cultural influencing factors, it is necessary to conform to the needs of the development of the current era, change the value concept, take into account the development characteristics of towns and villages in different regions, build a perfect land spatial planning system, and improve the effectiveness and practicability of planning.
Do a good job in controlling the use of rural land and space
The control of the use of rural land space is a means to implement spatial governance, through the control of physical space, functional space and organizational space, coordinate various types of space, coordinate the pattern and structure of rural space, and the specific path is to operate in the planning preparation, implementation permit, supervision and management, etc., divide different functional space partitions and boundaries, and use the control means of "space access + use permit" to promote rural space governance.
Construct the overall pattern of land space
Focusing on the functional positioning and main problems of village-level areas, the bottom-line constraints should be strengthened, protection and development should be taken into account, and the functional spaces such as agriculture, ecology and towns should be laid out as a whole, so as to construct the overall pattern of rural land space from the unit level. This paper proposes a dynamic balance strategy for agricultural land, agricultural facility construction land, construction land and other land use among multiple villages, so as to ensure that it can not only meet the requirements of land and space use control transmitted by the upper-level planning, but also adapt and match the scale of land use with the development needs of each village in the area, so as to improve the flexibility and flexibility of planning.
Improve the planning transmission system that integrates multiple plans
In the preparation of detailed rural planning, it is urgent to further refine the main tasks and their connection requirements with various spatial plans at all levels. Horizontally, in the face of the overall requirements of "integration of multiple plans" and "practicability", the main task of rural detailed planning should be to realize the integration of multiple planning and multi-dimensional goals, scientifically determine the content framework and compilation method of planning, and coordinate the implementation of "three districts and three lines" in rural areas, reasonably control homestead and infrastructure construction, optimize rural landscape and other key tasks, and realize the integration and replacement of the original multiple village-related spatial planning functions.
Vertically, we should focus on strictly implementing the management requirements of the upper-level national air planning, relevant departments or industry special plans, pay attention to undertaking township-level planning and control tasks and land use binding indicators, and fully consider the conditions and demands of rural areas themselves, and build a linkage transmission path of scale transmission and demand backtracking, so as to reserve flexible construction space for the comprehensive revitalization of rural areas.
Refine rural spatial governance
Optimize the development pattern of land space, improve the regulation and control of land space use, and incorporate the needs of rural development into the land space use regulation and control at the land plot scale. The comprehensive management of "object-organization-ownership" of rural space is a refined management process of rural space, which provides a strategic starting point for the implementation and refinement of territorial and space use rules. Through rural space governance, the goals of maximizing the use value of land space, maximizing the fair distribution of space rights, and maximizing multi-party benefits can be maximized.
Optimize the allocation of facility element resources
Focus on solving the problem of the coexistence of "idleness" and "shortage" of rural facilities, coordinate the layout of public service facilities and infrastructure in village-level areas, and orderly promote the co-construction, sharing and interconnection of facilities such as culture and entertainment, medical care and sports, elderly care and childcare, roads, water, electricity, sanitation and disaster prevention.
In addition, based on the characteristics of the existing facilities of each village, the radiation scope of various facilities is fully considered, and the layout principle of combining decentralization and concentration is adopted to improve the service capacity of the central village, integrate the service functions of other villages, implement dislocation configuration and complement each other, build a differentiated facility configuration model in the area, and further optimize the delivery of facility elements.
Summary
As China enters a new era of ecological civilization construction, it is necessary to rely on more refined detailed planning of rural units, strengthen the fine governance of land space, strengthen the protection and utilization of natural resources, transmit national air planning, and solve the long-term disjointed and chaotic situation of rural planning system, so as to promote the diversified development of rural economy.