生态文明体制改革总体方案（中英对照）

四、建立空间规划体系

IV. Establishing a Planning System for Territorial Space

（十四）编制空间规划。整合目前各部门分头编制的各类空间性规划，编制统一的空间规划，实现规划全覆盖。空间规划是国家空间发展的指南、可持续发展的空间蓝图，是各类开发建设活动的基本依据。空间规划分为国家、省、市县（设区的市空间规划范围为市辖区）三级。研究建立统一规范的空间规划编制机制。鼓励开展省级空间规划试点。编制京津冀空间规划。

14. Formulating plans for territorial space

All types of current spatial plans formulated by different departments will be integrated into unified spatial plans, which will be all-encompassing. The new plans will be the guide for the development of the country’s territorial space, and the spatial blueprints for sustainable development; they will be the fundamental basis for all types of development and construction programs. Spatial plans will be divided into national, provincial, and municipal (or county) levels (spatial plans for cities which are divided into districts will be formulated for the district level). Research will be conducted into how to establish unified and standardized mechanisms for formulating spatial plans. An environmental impact assessment system will be set up to be used in spatial planning. Provincial-level spatial planning trials are encouraged. A spatial plan will be developed for the Beijing-Tianjin-Hebei region.

（十五）推进市县“多规合一”。支持市县推进“多规合一”，统一编制市县空间规划，逐步形成一个市县一个规划、一张蓝图。市县空间规划要统一土地分类标准，根据主体功能定位和省级空间规划要求，划定生产空间、生活空间、生态空间，明确城镇建设区、工业区、农村居民点等的开发边界，以及耕地、林地、草原、河流、湖泊、湿地等的保护边界，加强对城市地下空间的统筹规划。加强对市县“多规合一”试点的指导，研究制定市县空间规划编制指引和技术规范，形成可复制、能推广的经验。

15. Integrating municipal-level (county-level) plans

Cities and counties will be supported in combining different types of plans into a single spatial plan, such that gradually, there will be one plan - one blueprint - per city or county. Municipal or county spatial plans should classify land using a unified standard, and, in accordance with the relevant functional zoning and the requirements of the provincial-level spatial plan, should delineate production space, living space, and ecological space, demarcate the development boundaries of urban construction areas, industrial areas, and rural living areas, as well as the boundaries of protected areas of arable land, woodlands, grasslands, rivers, lakes, and wetlands, and strengthen coordinated planning for urban subsurface space. More effective guidance will be given to cities and counties regarding their trials for plan integration. Research will be undertaken into developing guidelines and technical standards for the formulation of municipal-level (county-level) spatial plans, which will then serve as experience that can be applied elsewhere.

（十六）创新市县空间规划编制方法。探索规范化的市县空间规划编制程序，扩大社会参与，增强规划的科学性和透明度。鼓励试点地区进行规划编制部门整合，由一个部门负责市县空间规划的编制，可成立由专业人员和有关方面代表组成的规划评议委员会。规划编制前应当进行资源环境承载能力评价，以评价结果作为规划的基本依据。规划编制过程中应当广泛征求各方面意见，全文公布规划草案，充分听取当地居民意见。规划经评议委员会论证通过后，由当地人民代表大会审议通过，并报上级政府部门备案。规划成果应当包括规划文本和较高精度的规划图，并在网络和其他本地媒体公布。鼓励当地居民对规划执行进行监督，对违反规划的开发建设行为进行举报。当地人民代表大会及其常务委员会定期听取空间规划执行情况报告，对当地政府违反规划行为进行问责。

16. Developing new approaches for formulating municipal-level (county-level) spatial plans

We will explore how best to standardize procedures for formulating municipal-level (county-level) spatial plans, public participation will be expanded, and planning will be made more effective and transparent. Those areas piloting municipal-level (county-level) spatial plans are encouraged to integrate planning departments, making a single department responsible for formulating the spatial plan for that municipality or county; and they may form a planning appraisal committee of experts and representatives of the relevant fields. Prior to the formulation of a plan, a resource and environmental carrying capacity assessment must be carried out, and the results of the assessment should serve as the fundamental basis of planning. During the process of formulation, efforts should be made to solicit opinions of those from relevant sectors; the draft of the plan should be published in full so that the suggestions and comments of local residents can be extensively solicited. After evaluation and approval by the planning appraisal committee, the plan must be deliberated and passed by the local people’s congress, then reported to the relevant government department at the next level up to be placed on record. The finalized plan should include the text of the plan along with precise maps and images, and should be made available to the public through websites and other forms of local news media. Local residents are to be encouraged to oversee the implementation of the plan and report any development and construction activities that violate it. The local people’s congress and its standing committee will hear reports at regular intervals on the implementation of the plan, and will hold the local government accountable for violations of the plan.

五、完善资源总量管理和全面节约制度

V. Improving the Systems for Total Resource Management and Comprehensive Resource Conservation

（十七）完善最严格的耕地保护制度和土地节约集约利用制度。完善基本农田保护制度，划定永久基本农田红线，按照面积不减少、质量不下降、用途不改变的要求，将基本农田落地到户、上图入库，实行严格保护，除法律规定的国家重点建设项目选址确实无法避让外，其他任何建设不得占用。加强耕地质量等级评定与监测，强化耕地质量保护与提升建设。完善耕地占补平衡制度，对新增建设用地占用耕地规模实行总量控制，严格实行耕地占一补一、先补后占、占优补优。实施建设用地总量控制和减量化管理，建立节约集约用地激励和约束机制，调整结构，盘活存量，合理安排土地利用年度计划。

17. Improving the systems for providing the strictest possible protection for farmland and securing the economical and intensive use of land

The system for the protection of basic cropland will be improved and a redline below which the area of China’s permanent basic cropland must not fall will be established. To ensure that the area of basic cropland are not diminished, its quality does not deteriorate, and it is not converted to any other uses, the duty of basic cropland protection will be assigned to farming households and every piece of this cropland will be captured through photo-imaging and entered into the national cropland protection database, and its strict protection will be enforced. With the exception of unavoidable cases as specified by law in which basic cropland has to be used as the site of key national projects, no basic cropland may be used for construction purposes. Efforts will be redoubled to grade and monitor as well as maintain and improve the quality of cultivated land. The system for offsetting the occupation of cultivated land for purposes other than cultivation will be improved. A cap will be set on total cultivated land that can be used for new construction projects. It will be made sure that equivalent land is offset ahead of occupation and that the replacement land is of equal or higher grade than the cultivated land to be occupied. A cap will also be on total land that can be occupied for construction purposes, management will be instituted to reduce the amount of cultivatable land that is used as such, and incentive and constraint mechanisms will be established to encourage more economical and intensive use of land. Reasonable annual plans will be made for the use of land, adjusting the structure of land used for different purposes and making the best use of land that has already been made available.

（十八）完善最严格的水资源管理制度。按照节水优先、空间均衡、系统治理、两手发力的方针，健全用水总量控制制度，保障水安全。加快制定主要江河流域水量分配方案，加强省级统筹，完善省市县三级取用水总量控制指标体系。建立健全节约集约用水机制，促进水资源使用结构调整和优化配置。完善规划和建设项目水资源论证制度。主要运用价格和税收手段，逐步建立农业灌溉用水量控制和定额管理、高耗水工业企业计划用水和定额管理制度。在严重缺水地区建立用水定额准入门槛，严格控制高耗水项目建设。加强水产品产地保护和环境修复，控制水产养殖，构建水生动植物保护机制。完善水功能区监督管理，建立促进非常规水源利用制度。

18. Improving the system for the strictest possible management of water resources

To give priority to saving water, achieve harmony between development and water conservation, carry out systemic governance, and ensure that both government and market play their respective roles, the system for controlling total water usage will be improved to ensure water security. Efforts will be accelerated to formulate water allocation plans for major river basins, strengthen coordination between provincial-level governments, and improve the system of targets for control of total water usage at the provincial, municipal, and county levels. Effective mechanisms will be established to ensure economical and intensive water usage. More work will be done to adjust the way water resources are used and improve their allocation. The system for evaluating the impact of plans and construction projects on water resources will be improved. Efforts will be made to draw principally on pricing and taxation to gradually establish systems for controlling and instituting quota-based management of the volume of water used in irrigation, and for controlling and instituting quota-based management of the planned water usage of high-water-consuming industrial enterprises. In regions seriously affected by water scarcity, water quotas will be used as a threshold for market entry and the development of high-water-consuming projects will be strictly controlled. The protection and environmental restoration of areas producing aquatic products will be strengthened, their aqua culture will be controlled, and mechanisms will be established for the protection of aquatic plant and animal life. Regulation of water functional zones will be improved and systems for promoting the utilization of alternative water resources will be established.

（十九）建立能源消费总量管理和节约制度。坚持节约优先，强化能耗强度控制，健全节能目标责任制和奖励制。进一步完善能源统计制度。健全重点用能单位节能管理制度，探索实行节能自愿承诺机制。完善节能标准体系，及时更新用能产品能效、高耗能行业能耗限额、建筑物能效等标准。合理确定全国能源消费总量目标，并分解落实到省级行政区和重点用能单位。健全节能低碳产品和技术装备推广机制，定期发布技术目录。强化节能评估审查和节能监察。加强对可再生能源发展的扶持，逐步取消对化石能源的普遍性补贴。逐步建立全国碳排放总量控制制度和分解落实机制，建立增加森林、草原、湿地、海洋碳汇的有效机制，加强应对气候变化国际合作。

19. Establishing a system for total energy consumption management and energy conservation

High priority will be given to energy conservation, the control of energy intensity will be strengthened, and the responsibility system and the system of incentives for meeting energy conservation targets will be improved. Improvements will be made to the energy statistics system. The management system for energy conservation by major energy-consuming organizations will be improved, and a mechanism for making voluntary pledges on energy conservation will be implemented on an explorative basis. The system of energy conservation standards will be improved to make timely updates to energy efficiency standards for energy-consuming products, limits on energy consumption for energy-intensive industries, and energy efficiency standards for buildings. A reasonable target will be established for total national energy consumption and broken down and assigned to the provincial-level and major energy-consuming organizations. The mechanism for promoting the use of energy-saving, low-carbon products, technologies, and equipment will be improved and lists of technologies will be issued at regular intervals. Supervision over energy conservation will be strengthened. Stronger support will be provided for the development of renewable energy sources, and subsidies for all fossil fuels will be phased out. A system for controlling total national carbon emissions and a mechanism for breaking down the responsibility for implementation will be gradually established. A mechanism for effectively increasing forest, grassland, wetland, and ocean carbon sinks will be set up. China’s involvement in international cooperation on responding to climate change will be strengthened.

（二十）建立天然林保护制度。将所有天然林纳入保护范围。建立国家用材林储备制度。逐步推进国有林区政企分开，完善以购买服务为主的国有林场公益林管护机制。完善集体林权制度，稳定承包权，拓展经营权能，健全林权抵押贷款和流转制度。

20. Establishing a system for protecting virgin forests

All virgin forests will be placed under protection. A national timber forest reserve system will be established. Government administration will be gradually separated from the management of state-owned forests, and the public benefit forest protection and management system will be improved for state-owned forestry farms drawing principally on service procurement. The collective forest tenure system will be improved. Tenure contracts for collective forests will be kept stable, the operations allowed under these contracts will be expanded, and the systems by which forest tenure rights are used as collateral for loans and tenure rights are transferred will be improved.

（二十一）建立草原保护制度。稳定和完善草原承包经营制度，实现草原承包地块、面积、合同、证书“四到户”，规范草原经营权流转。实行基本草原保护制度，确保基本草原面积不减少、质量不下降、用途不改变。健全草原生态保护补奖机制，实施禁牧休牧、划区轮牧和草畜平衡等制度。加强对草原征用使用审核审批的监管，严格控制草原非牧使用。

21. Establishing a system for protecting grassland

The system by which collective grassland is contracted out for operation to individual households will be kept stable and improved to ensure that the plot and area of every piece of grassland contracted out is measured accurately, contracts are signed, and contracting certificates are granted. Proper procedures will be introduced for the transfer of grassland under such contracts. A system for protecting basic grassland will be put into effect to ensure that the area of basic grassland does not diminish, its quality does not deteriorate, and it is not converted for any other use. The subsidy and award mechanisms for the ecological conservation of grassland will be improved. Grazing on certain areas of grassland will be banned or temporarily suspended, rotational paddock grazing will be introduced, and efforts will be made to strike a balance between grass and livestock. Oversight over there view and approval of grassland requisitions will be strengthened and the use of grassland for any purpose other than animal husbandry will be strictly controlled.

（二十二）建立湿地保护制度。将所有湿地纳入保护范围，禁止擅自征用占用国际重要湿地、国家重要湿地和湿地自然保护区。确定各类湿地功能，规范保护利用行为，建立湿地生态修复机制。

22. Establishing a system for protecting wetlands

All wetlands will be placed under protection, and the unauthorized requisition or occupancy of wetlands of international importance, and those of national importance, and wetland reserves will be banned. The services of wetlands will be determined, their protection and utilization will be standardized, and a mechanism for the ecological restoration of wetlands will be established.

（二十三）建立沙化土地封禁保护制度。将暂不具备治理条件的连片沙化土地划为沙化土地封禁保护区。建立严格保护制度，加强封禁和管护基础设施建设，加强沙化土地治理，增加植被，合理发展沙产业，完善以购买服务为主的管护机制，探索开发与治理结合新机制。

23. Establishing a system for closing off desertified land for protection

Contiguous areas of desertified land for which conditions are not currently in place to carry out anti-desertification programs will be designated as closed-off protection zones. Systems for strict protection will be established, construction of infrastructure needed to close off and protect and manage such zones will be stepped up, desertified land governance will be strengthened, and vegetation will be increased. The appropriate development of the sand industry will be encouraged. The mechanisms for protection and management drawing principally on service procurement will be improved. New approaches that combine development with governance will be explored.

（二十四）健全海洋资源开发保护制度。实施海洋主体功能区制度，确定近海海域海岛主体功能，引导、控制和规范各类用海用岛行为。实行围填海总量控制制度，对围填海面积实行约束性指标管理。建立自然岸线保有率控制制度。完善海洋渔业资源总量管理制度，严格执行休渔禁渔制度，推行近海捕捞限额管理，控制近海和滩涂养殖规模。健全海洋督察制度。

24. Improving the system for developing and protecting marine resources

Marine functional zones will be established, the major functions of offshore waters and islands will be determined, and efforts will be made to guide, control, and standardize behavior related to the use of oceans and islands. A system will be introduced to control total sea reclamation, imposing binding limits on the total area of ocean over which reclamation can take place. A system will be established for maintaining natural coastlines. The system for managing total marine fishery resources will be improved. The systems for instituting fishing off-seasons and bans on fishing will be strictly enforced. Limits on offshore fishing will be imposed. The scale of offshore and mudflat aquaculture will be controlled.

（二十五）健全矿产资源开发利用管理制度。建立矿产资源开发利用水平调查评估制度，加强矿产资源查明登记和有偿计时占用登记管理。建立矿产资源集约开发机制，提高矿区企业集中度，鼓励规模化开发。完善重要矿产资源开采回采率、选矿回收率、综合利用率等国家标准。健全鼓励提高矿产资源利用水平的经济政策。建立矿山企业高效和综合利用信息公示制度，建立矿业权人“黑名单”制度。完善重要矿产资源回收利用的产业化扶持机制。完善矿山地质环境保护和土地复垦制度。

25. Improving the system for managing the development and utilization of mineral resources

A system for the investigation and evaluation of the development and utilization of mineral resources will be established. The ascertainment and registration of mineral resources and registration management of their pay-per-time occupation will be strengthened. A mechanism for the intensive development of mineral resources will be established, the concentration of enterprises in mining areas will be increased, and large-scale development is encouraged. National standards including those regarding the mining recovery rate of major mineral resources, ore dressing recovery rate, and the comprehensive utilization rate of mineral resources will be improved. The economic policies for encouraging better utilization of mineral resources will be refined. A system will be established to make available to the public information on whether mining enterprises are utilizing mineral resources efficiently and comprehensively, and a system will be set up for blacklisting those breaking mining operation rules. The mechanism for introducing industry-based approaches will be improved to support the recycling of major mineral resources. The systems for protecting the geological environment in mining areas and reclaiming deserted areas will also be improved.

（二十六）完善资源循环利用制度。建立健全资源产出率统计体系。实行生产者责任延伸制度，推动生产者落实废弃产品回收处理等责任。建立种养业废弃物资源化利用制度，实现种养业有机结合、循环发展。加快建立垃圾强制分类制度。制定再生资源回收目录，对复合包装物、电池、农膜等低值废弃物实行强制回收。加快制定资源分类回收利用标准。建立资源再生产品和原料推广使用制度，相关原材料消耗企业要使用一定比例的资源再生产品。完善限制一次性用品使用制度。落实并完善资源综合利用和促进循环经济发展的税收政策。制定循环经济技术目录，实行政府优先采购、贷款贴息等政策。

26. Improving the system of resource recycling

An effective system will be established to record resource-output ratio statistics. The extended producer responsibility (EPR) system will be put into effect, pushing producers to perform their responsibilities for take-back and disposal of their end-of-life products. A system will be established to utilize farming, livestock, and aquaculture waste and achieve the organic integration and circular development of farming, husbandry, and aquaculture. The establishment of a system for making the separation of waste compulsory will be accelerated. A list of renewable resources to be recycled will be worked out and the mandatory recycling of composite packaging, batteries, agricultural plastic sheeting, and other low-value waste will be required. Efforts will be accelerated to develop standards for the recycling and reuse of resources by type. A system for promoting the use of products and raw materials made of recycled resources will be established to require enterprises consuming related raw materials to use a certain proportion of recycled products. The system for restricting the use of single-use disposable products will be improved. Taxation policies will be implemented and improved to promote the comprehensive utilization of resources and the development of the circular economy. A list of circular economy technologies will be formulated and policies such as priority government procurement and discounted interest on loans will be implemented.