生态保护红线评估调整过程中的现实问题与优化建议
The Problems and Suggestions in the Process of Ecological Red Line Assessment and Adjustment
作者信息：
徐樑 广州市城市规划勘测设计研究院上海分院主创规划师
桑劲 广州市城市规划勘测设计研究院上海分院常务副院长（通讯作者）
彭敏学 广州市城市规划勘测设计研究院上海分院副院长
隋玉亭 广州市城市规划勘测设计研究院上海分院主创规划师
唐尧峰 广州市城市规划勘测设计研究院上海分院规划师
王煜坤 广州市城市规划勘测设计研究院上海分院主创规划师
李志远 广州市城市规划勘测设计研究院上海分院助理规划师
郭世龙 广州市城市规划勘测设计研究院上海分院助理规划师
摘要：文章认为，生态保护红线评估调整工作的目的在于解决既有方案的要素划定不尽、空间划定不实、多线冲突频现等问题。评估调整工作在缺乏指导细则的情况下，前置于各类调查工作和国土空间主体规划，给调整工作带来现实困难， 也被地方政府视作化解各类风险、争取发展权的博弈机遇。将生态保护红线方案的既有问题通过本轮调整予以完全解决，尚有一定的难度。文章建议，评估调整工作的进一步深化，应从细化操作性规程与完善红线制度两个方面着手。在细化操作规程方面，应该尽快明确生态保护红线与永久基本农田保护红线的衔接规则， 明确人为活动空间的管制规则，加强对“调入”空间的指导；在制度完善方面，应加快建立生态绩效考核机制，研究出台生态保护红线价值转换机制，研究生态保护红线内的事权细化，研究制定生态保护红线优化调整机制。
关键词：生态保护红线，评估调整，央地博弈
Abstract ：The paper holds that the purpose of the assessment and adjustment of ecological red line is to solve the problems like insufficient delimitation of ecological elements, inaccurate spatial delimitation and frequent conflicts of multi-line in existing schemes. Under the situation of the absence of guidance rules, the assessment and adjustment work is put before all kinds of territorial investigation work and spatial planning, which not only brings practical difficulties to the adjustment work, but also is regarded as a game opportunity to resolve risks and strive for the developmental right by local governments. It is still difficult to solve the existing problems of the ecological protection red line through this round of adjustment. The paper suggests that the further assessment and adjustment work should start from two aspects: refinement of operational regulations and improvement of the ecological red line system. In terms of detailed operating procedures, the relationship between the ecological red line and the permanent basic farmland should be initially clarified as soon as possible. The regulation rules of the human activity space in ecological red line should be clarified. The guidance of the "inbound" space should be strengthened. As for the system improvement, the establishment of ecological performance appraisal mechanism needs to be speed up initially. Meanwhile, the study of value conversion mechanism of ecological red line and the power refinement within the ecological red line both needs to be urgently conducted. Finally, the mechanism of ecological red line optimization and adjustment need to be further studied and formulated.
Keywords ：ecological red line, assessment and adjustment, game between central and local government
文章来源：《城乡规划》2020 NO.1
