| 摘要: |
| 合理规划和有序开发利用地下空
间，是优化城市空间结构和功能布局、促
进土地集约节约利用、增强城市安全韧性
的必要举措，也是提升国土空间自然资源
资产价值的重要手段。“多规合一”改革
背景下，地下空间规划亟待适应国土空间
全域全要素用途管制的要求，加快融入国
土空间规划体系。当前，我国地下空间规
划编制与实施管理方面仍存在地下空间资
源综合调查评价深度、精度不统一，地下
空间规划编制传导衔接不畅、缺乏精细管
控，规划审批与管理缺少协同机制等主要
问题。本研究针对性地提出：完善针对全
要素、多目标协同的城市地下空间资源调
查评估标准；重点解决地下空间规划与其
他空间类规划“打架”的问题，在国土空
间规划体系中进一步明确地下空间规划编
制技术与内容要求；适应精细化管理需
求，完善立体空间三维地籍管理和权利设
立；加强信息赋能，强化城市地下空间资
源全要素、全周期智慧化管理。 |
| 关键词: 国土空间规划 地下空间规划 资源调查评估 规划编制体系 规划实施 |
| DOI：10.13791/j.cnki.hsfwest.20241215002 |
| 分类号: |
| 基金项目:自然资源部“国土空间规划审查、监测评估和行业管理”项目（102121221750000000007） |
|
| Research on issues and countermeasures in the formulation and implementationmanagement of underground space planning under the territorial spatial planning system |
|
LI Yan,HUANG Mei,ZHAO XING Shuo,ZHANG Lei
|
| Abstract: |
| Urban underground space is an important national spatial resource. Effective planning of
underground space can facilitate the integration of above-ground and underground spaces, promote the
efficient and sustainable use of land, and strengthen urban safety and resilience. In recent years, the state
has paid more and more attention to the development and protection of underground space. With the
promotion of the “multi planning integration” reform, the national level has put forward higher
requirements for underground space planning. Based on this, this study takes into account the differences
in geological conditions and economic development levels in different regions, and focuses on visiting
seminars, workshops and questionnaire surveys in June-October 2023, targeting natural resource
management departments and related planning technicians in typical cities such as Beijing, Shanghai,
Guangzhou, Shenzhen, Chongqing, Xi’an, Qingdao, Shenyang and Xiamen. In the research found that
China’s underground space planning and implementation of the management of the main existence of
three major problems. 1)As the national level has not yet formulated a standard system for the
investigation of underground space resources, there is a lack of uniform requirements for the scope of
underground space resources, the objects, types, depth and accuracy of data to be investigated, resulting
in varying progress, depth and accuracy of the work of investigating underground space resources in
various cities, which makes it difficult to support the scientific compilation of underground space
planning and the refined management of the development and utilization of underground space. 2)The
preparation of underground space planning is poorly conduced and lacks fine-grained control. The
content of underground space planning in the urban master plan is relatively principled, and it is difficult
to guide the specific behavior of underground space development and utilization; the conduction and
articulation of special planning for underground space with other spatial planning and detailed planning
still needs to be strengthened. 3)Roads, railways, municipalities, pipeline corridors, human security,
commercial and other facilities involved in the development and utilization of underground space are
subject to the planning and construction led by different administrative authorities, and there is a lack of
effective coordination among the various departments. Based on these issues, this paper proposes
countermeasures to optimize the preparation and implementation management of underground space
planning under the national land spatial planning system. Under the requirements of the era of integrating
high-quality development and high-level security, it is necessary to strengthen the investigation,
assessment and demand analysis of underground space resources within the city limits. In order to focus
on solving the problem of the lack of coordination between underground space planning and other spatial
planning, it is recommended that, in accordance with the requirements for the use control of territorial
space for the entire territory and all its elements, the content and technical requirements for the
preparation of underground space planning should be further clarified in the territorial spatial planningsystem, the overall coordination and guidance of the development and utilization of underground space should be strengthened, and the transmission,
articulation and synergies between master plans, detailed plans and relevant special plans should be reinforced. Adapting to the needs of refined management,
accelerating the study and formulation of unified technical specifications and result data requirements for real estate cadastral surveys, measurements, etc.,
which are integrated above and below the ground, and relying on the above and below-ground three-dimensional real estate cadastral management system to
realize the tandem flow of business in all aspects of three-dimensional rights ascertainment above and below the ground. In order to improve the ability of
intelligent management of all elements and cycles of urban underground space resources, the article suggests constructing a database for the management of the
whole life cycle of underground space, incorporating the contents of underground space planning, construction and management into the “one map”
implementation and supervision information system of national land spatial planning, and connecting the business of underground space planning into China
spatial planning observation network (CSPON). Finally, the study concludes that future research should focus on the following core issues, such as the priority
of multi-purpose utilization of underground space, the rules for allocating the right to use underground space, and the pattern of development, utilization and
planning layout of deep underground space. |
| Key words: territorial spatial planning underground space planning resource investigation and evaluation planning formulation system planning
implementation |
