Research on the application of ecological space optimization and management in urban planning environmental impact assessment
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摘要:
科学划定生态空间并实施有效的空间管控，是落实“三线一单”环境管理机制过程中，规划环境影响评价的重要内容。结合城市规划制定在纲要形成、规划研究、规划编制、规划报批4个主要阶段，构建包括空间要素解析与基础方案形成、生态环境现状分析与空间协调性分析、规划实施对空间利用影响评价、空间优化调整建议及管控对策提出等主要任务在内的规划环评生态空间优化与管控主要技术流程，并应用于“上海市宝山区总体规划环境影响评价”。生态空间优化结果表明，通过纳入生态保护红线区和河道水网、新增生态节点和廊道等方式，宝山区优化调整后的生态空间总面积从65.74 km2增至121.84 km2，占区域陆域面积的40.4%，达到《上海市城市总体规划（2016—2040年）》中“2040年宝山区生态用地占陆域面积40%”的要求。城市规划环评能够在城市规划生态空间的基础上，从生态环境重大问题、区域环境需求等方面进一步优化生态空间格局，提出具有针对性的管控措施，为我国新型城镇化推进和生态文明建设提供了有效手段。
Abstract:In the implementation of the Three Lines One Permit environmental management mechanism process, scientific delineation and effective management of ecological space is an essential part of planning environmental impact assessment (PEIA). Based on the four main stages of urban planning (i.e. outline formation, planning research, planning drafting, and planning approval), the main technical processes of ecological space optimization and management for PEIA were constructed, including the main tasks of spatial element analysis and basic scheme formation, analysis of the ecological environment and spatial coordination, evaluation of the impact of planning on spatial utilization, and recommendations for spatial optimization and management. The technical processes were also applied to the Environmental Impact Assessment of Shanghai Baoshan District Master Plan. The results showed that by incorporating ecological protection red lines and river networks as well as adding new ecological nodes and corridors, the total optimized ecological space in Baoshan District increased from 65.74 km2 to 121.84 km2, accounting for 40.4% of the regional land area, meeting the requirements of Shanghai Urban Master Plan (2016-2040), which proposed that by 2040, Baoshan District's ecological land would account for 40% of the land area. In conclusion, urban PEIA could further optimize the ecological spatial pattern in terms of major ecological environmental issues and regional environmental demands based on the ecological space of urban planning, and provide effective means to promote new urbanization and ecological civilization construction in China.
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图 1 规划环评中生态空间优化与管控技术流程
Figure 1. Technical flow of ecological space optimization and governance in planning EIA
图 3 上海市宝山区生态空间功能单元分区示意
Figure 3. Ecological spatial function unit zoning in Baoshan District, Shanghai
图 4 上海市宝山区生态空间管控基础方案示意
Figure 4. Basic plan of ecological space control in Baoshan District, Shanghai
图 5 上海市宝山区生态空间管控优化方案
Figure 5. Optimized plan of ecological space control in Baoshan District, Shanghai
表 1 上海市宝山区生态空间功能单元生态环境问题与主要空间利用冲突
Table 1. Ecological environmental problems and spatial utilization conflicts in the ecological space functional units of Baoshan District, Shanghai
功能单元 现状主要生态环境问题 现状主要空间利用冲突 南部中心城发展区 部分河流两岸陆域功能布局混乱，粉尘、噪声污染严重；主要河道水环境污染较严重；飞机起降噪声影响明显 工业园区与居住区混杂，主要河道两岸陆域功能布局混乱，与规划功能定位不符，主要河道岸线均已硬化，自然岸线消失 中东部滨江发展区 现状工业园区是区域主要大气污染源分布区，周边主干道扬尘和交通噪声污染严重；主要河道水环境污染严重 工业园区与居住区混杂，集装箱主要装卸区、集装箱货场造成的运输车辆扬尘和交通噪声污染严重，主要河道两岸陆域功能布局混乱，与规划功能定位不符 中部新城重点保护区 河流水环境污染严重 工业园区与农村居民点混杂，大型居住区与工业园区临近，易受其污染影响 东北部优化发展区 大型居住区，受工业园区大气污染影响，主要河道水环境污染严重 工业园区与居住区混杂，大型居住区临近工业园区，部分工业园区与居住区边界模糊，存在混杂趋势 北部生态保育区 大型居住区，受工业园区大气污染影响，河流水环境污染严重 工业园区与居住区混杂，陈行水库距离港区较近 
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表 2 上海市宝山区生态空间功能单元发展定位的生态需求
Table 2. Ecological requirements for the development of ecological spatial functional units in Baoshan District, Shanghai
功能单元 发展定位的生态需求 南部中心城发展区 加强河道综合整治，选择有条件的河道实施生态修复
，推进外环绿带、南大地区生态绿地、楔形绿地、道路绿化等建设，大幅度提高绿地比例；
以南部地区转型发展为突破，实现“绿色化”生活、生产和城市建设方式中东部滨江发展区 加快推进外环绿带建设，打通外环生态走廊，
继续推进滨江景观带建设，形成开放连续、舒适宜人的特色景观空间；
加快推进工业绿化隔离带建设，
加快绿色港口建设，
加快宜居社区发展，建设低碳环境和精品社区中部新城重点保护区 结合地块开发，坚决取缔、淘汰居住用地相邻且存在潜在“厂群矛盾”（工业园区与居住区矛盾）的工业企业；
加快区域生态用地的保护和各类型绿地、公园建设，以绿道、绿廊等形式覆盖、贯穿本区域，营造生态宜居的人居环境；
加快该区域的生态化建设和推进老镇区整治，全面完善基础设施建设
配合旧城改造和新地块开发，遵循绿色、节能原则，开展低影响开发、立体绿化等环境友好试点项目建设及推广东北部优化发展区 开展工业隔离防护林建设，缓解“厂群矛盾”（工业园区与居住区矛盾），
提高对工业企业的监管力度，尽可能将工业企业对周边乃至宝山区整体环境的负面影响最小化北部生态保育区 强化饮用水水源地保护，提升安全保障能力；加强水源保护区隔离设施的长效管理，开展水源保护区生态修复工作；全面落实生态补偿制度；遵循应保尽保原则，提升该区域生态功能；加强对基本农田、水源保护区的保护，结合生态红线划分，推进土地性质不合理的地块转型为生态保护用地；有序推进生态农业发展，基本形成城乡一体化和谐发展新格局；规划启动罗泾镇郊野单元建设，
加大重点区域复垦工作力度，开展生态建设
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表 3 上海市宝山区生态空间要素主要特征
Table 3. Main characteristics of elements within the ecological space of Baoshan District, Shanghai
空间要素 主要特征 植被 以人工植被为主，现有林地的景观和功能相对单一，质量和生态服务功能相对较低；宝山区绿化500 m服务半径内的盲点未完全消除，居住区密集区域缺少一定规模的公园绿地 耕地 区域内农业用地分布较为零散，缺少较大面积的整合用地，无法进行大规模现代农业生产，未能有效发挥农业用地的生态功能 湿地 河流湿地面积约为2 862.76 hm2（约占上海市湿地总面积的0.70%），但存在河网末端村镇级河道被填埋、非主干道河道较少、河网结构趋于简单等问题，河道连通性较差 岸线 岸线开发强度高，工业岸线比例大，区内有长江岸线29 km，黄浦江岸线7 km，大部分属于已硬化岸线
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