Recently, the General Office of the Ministry of Natural Resources issued the "Guidelines for Resilient Urban Planning and Land Policies with Complex Functions of Flat and Emergency Functions" (hereinafter referred to as the "Policy Guidelines for Flat Emergencies"), as the second policy guidelines for land and spatial planning to implement the requirements of the National Territorial and Spatial Planning Outline (2021-2035), which will play an important role in guiding local policies in formulating corresponding policies. The reporter of "China Natural Resources News" interviewed the main person in charge of the Land and Spatial Planning Bureau of the Ministry of Natural Resources to interpret the background, principles, key points of planning preparation, and the integration of planning and land policy of the "Policy Guidelines for Ordinary Emergencies".
One
The "Guidelines for Emergency Policy" was issued
What is the background?
General Secretary Xi Jinping attaches great importance to the "first priority" of development and the "top priority" of security, pointing out that "coordinating development and security, enhancing the sense of danger, and being prepared for danger in times of peace is a major principle of our party's governance of the country." "The 2023 Central Economic Work Conference proposed that we must adhere to the benign interaction between high-quality development and high-level security, promote high-level security with high-quality development, ensure high-quality development with high-level security, and dynamically balance and complement each other in development and security.
The report of the 20th National Congress of the Communist Party of China (CPC) proposed to "build livable, resilient and smart cities". A resilient city is one in which the city's vital functions act like springs, calmly responding to natural and social pressures and quickly recovering to their original state. Resilience planning is a planning method, the core of which is to build a safe, reliable, flexible, rapid recovery, and organically organized urban space governance system. To coordinate the spatial needs of development and security, it is urgent to give full play to the strategic guidance and rigid constraints of territorial spatial planning, and strengthen the planning of resilient cities.
At the meeting of the Political Bureau of the CPC Central Committee in April 2023, it was proposed to actively and steadily promote the transformation of urban villages and the construction of public infrastructure for "peacetime and emergency" in super and mega cities, and plan to build affordable housing. In July, the General Office of the State Council issued the "Guiding Opinions on Actively and Steadily Promoting the Construction of Public Infrastructure for Ordinary and Emergency Purposes" in Super Large and Megacities (hereinafter referred to as the "Guiding Opinions"), requiring the overall planning and land use guarantee of "peacetime and emergency" public infrastructure, and the preparation of land and space planning with complex functions of ordinary and emergency functions. Under the leadership of the party group of the ministry, we carried out a comprehensive investigation of 21 super megacities across the country, based on the responsibilities of the "two unifications" of our ministry, studied and judged the existing stuck points and plugged points, formed a research report, and issued the "Notice on Coordinating the Land Space Planning and Land Use Guarantee of "Flat and Emergency Dual-use" Public Infrastructure in August. After a period of practice, various localities have also proposed that in promoting the construction of "peacetime and emergency" public infrastructure, it is still necessary for the ministry to guide the planning method, refine the implementation path and support policies. In addition, as the urbanization rate of the mainland has exceeded 66%, the establishment and improvement of the institutional mechanism and policy system of urban-rural integration development proposed by the 19th National Congress of the Communist Party of China also put forward more spatial requirements for promoting the flow of urban and rural elements and building a complementary relationship between urban and rural areas.
Based on this, the Bureau of Land and Spatial Planning of the Ministry of Natural Resources organized and formulated the "Policy Guidelines for Flat Emergency Response", which is based on the principle of "it is better to be prepared than to be unprepared", to further deepen the planning requirements and land support policies of resilient cities with complex functions of emergency and emergency functions, and improve the effectiveness of planning to deal with risks. Following the issuance of the Guidelines on Planning and Land Policies to Support Urban Renewal (2023 Edition) issued by the Ministry last year, the Guidelines for Planning and Land Policies to Promote the Convergence of Planning and Land Policies focus on the coordination of development and security. Through this policy guidance, our ministry will more effectively support the completion of the task of "building resilient cities" proposed by the 20th National Congress of the Communist Party of China.
Two
What is the public base of "peacetime and emergency".
Infrastructure, flat and emergency function compound toughness
What principles should be adhered to in urban planning?
The "Guiding Opinions" proposes to actively and steadily promote the construction of "peacetime and emergency" public infrastructure, which will be used for tourism, health care, leisure, etc. "in normal times", and can be converted into isolation places in "emergency" to meet the needs of emergency isolation, temporary resettlement, material support, etc.; It is proposed to compile a territorial spatial plan with a combination of level-emergency functions. Through the "Policy Guidelines for Peacetime and Emergency", we will accurately grasp the connotation of the compound function of peacetime and emergency, and integrate development and safety in one plan, focusing on development in "peacetime" and safety in "emergency"; It is necessary not only to keep the bottom line and leave room in space, but also to respond to risk changes in time and make a good plan; It is necessary to consider not only the compatibility of the "usual" and "emergency" functions, but also the rapid conversion of the "normal" and "emergency" functions.
Public security is an important embodiment of national security, which is linked to economic and social development on the one hand, and the tranquility of thousands of households on the other, and is the most basic livelihood of the people. Urban planning is to serve the people, and it is necessary to adhere to the supremacy of the people and the supremacy of life, practice the mass line of the new era, start from meeting the security needs of the people for a better life, implement the overall national security concept, give full play to the overall leading role of planning, and promote the modernization of urban safety governance capabilities.
Specifically, in terms of spatial layout, it is necessary to adhere to the integration of urban and rural areas, take the city as an organism, promote the extension of urban infrastructure and public service facilities to the surrounding rural areas, form a network layout of the combination of points, lines and surfaces of "flat and emergency" public infrastructure, and improve the overall ability of urban and rural areas to cope with disasters and risks. In terms of the aspect, it is necessary to combine the demographic, social, and resource endowment characteristics of the metropolitan area and the urban-rural living circle, and delineate the level-emergency functional composite area according to the different types of disasters and hierarchical response needs, so as to promote regional overall planning and linkage; Online, it is necessary to fully consider the needs of emergency rescue and evacuation and material supply in "emergency", and pre-control emergency support channels; At the point of view, it is necessary to strengthen the planning and arrangement of "level-emergency dual-use" public infrastructure nodes with hierarchical response, and clarify the requirements for functional transformation and compound utilization.
It should be noted that the "dual-use of ordinary and emergency" is not a problem of allocating space resources from scratch, but also involves the adjustment of the relationship between stock resources and assets, and the adjustment of rights and interests. After the overall planning and layout, how to implement the "peacetime and emergency" public infrastructure and how to operate sustainably, it is necessary to fully consider its complex ownership relationship, protect the rights and interests of the masses, further give full play to the enthusiasm of farmers and collective economic organizations and the role of market mechanisms, and enhance regional value through the optimal allocation of space resources and the effective operation of space assets, so as to realize the co-construction and sharing of cities and villages. At the same time, it is necessary to adhere to the bottom-line thinking and promote the construction of "peacetime and emergency" public infrastructure in accordance with laws and regulations.
Three
How to do a good job of the toughness of the flat and emergency function compound
Sexual urban planning, supporting the "flat and emergency two."
With the phrase "Public Infrastructure?
In order to cope with the current era of uncertainty, the resilient city planning with the composite functions of the flat and emergency functions is to "add" the existing territorial spatial planning system, implement the resilience requirements into the planning, and superimpose the different functions of the "flat emergency" on the same space, so it also puts forward new requirements for the planning preparation.
First of all, it is necessary to strengthen investigation and evaluation. On the one hand, cities are facing increasing risks of natural disasters, social security and other emergencies, and it is urgent to assess the resilience of cities to disasters. The "Policy Guidelines for Emergencies and Emergencies" emphasizes that resilience assessment should be included in the "physical examination and assessment" of planning and implementation, relying on the basic information platform of land and space, giving full play to the supporting role of new technologies and methods such as big data and artificial intelligence, identifying the risk characteristics faced by cities, and finding out the problems and shortcomings of urban spatial layout and infrastructure allocation in responding to disasters. On the other hand, the transformation and utilization of existing infrastructure is the focus of the construction of public infrastructure for both ordinary and emergency purposes, which involves complex ownership relationships and multiple stakeholders. In order to solve the problem of insufficient participation of social capital and stimulate the vitality of multiple subjects, the "Policy Guidelines for Ordinary and Emergency Situations" emphasizes that the responsibility of the natural resources department to safeguard the rights and interests of resource assets, make full use of the statutory achievement data such as land survey, cadastral survey, real estate registration, and resource asset inventory, and clarify the stock space and potential resources that meet the conditions for the transformation of the "dual-use function".
Secondly, it is necessary to carry out application scenario analysis. There are great differences in population distribution, land resources, industrial layout, geographical environment, and infrastructure disaster resistance in different regions, so it is necessary to explore the types of application scenarios that can be converted in "emergency" according to local conditions. The "Policy Guidelines for Peacetime and Emergency" encourages localities to start from the needs of "emergency" functions such as medical treatment and isolation, refuge and resettlement, evacuation and rescue, and material supply, and focus on different "peacetime emergency" situations such as "epidemic relief", "disaster relief", "peacetime race", "peacetime vacation" and "peacetime war", sort out various "peacetime and emergency" application scenarios and space needs, and put forward supporting land policies according to the analysis of application scenarios to ensure the implementation of the plan.
Finally, it is necessary to incorporate the requirements of resilient cities with complex functions into the territorial spatial planning system. In accordance with the requirements of "integration of multiple plans", the Guidelines for Peacetime and Emergency Policies clarify that in the preparation of different types and levels of territorial spatial planning, the planning and management content of resilient cities with complex functions should be improved according to the needs of urban safety and resilience, so as to better play the planning role of making plans for future spatial transformation, and improve the ability of urban space governance for flexible transformation and rapid recovery. At the level of overall planning, attention should be paid to the overall arrangement of space. From the perspective of optimizing the overall urban-rural security pattern, the objectives, principles, work priorities and overall requirements of spatial layout are proposed. Detailed planning should clarify the differentiated requirements for the combination of flat and emergency functions, and the guidance requirements. The detailed planning at the unit level within the development boundary should implement and refine the requirements for site selection and scale, carrying scale, and function conversion of "level-emergency dual-use" space resources; At the implementation level, the detailed planning should further determine the spatial control and emergency use requirements such as land use boundaries and functional conversion; Village planning and other types of detailed planning should make full use of idle rural resources and implant the function of "emergency". The special plan should coordinate the allocation and layout requirements of various spatial resources. Refine the implementation of the relevant content in the overall planning stage, delineate the flat and emergency functional compound area, and clarify the facility layout and supporting requirements for different application scenarios. The main contents of the special plan approved in accordance with the law shall be incorporated into the detailed plan through legal procedures before it can be used as the basis for use control (including planning permission).
Four
This year's Natural Resource Systems Working Meeting
Re-emphasis is placed on planning and land policy
Integration, "Peacetime Policy Guidelines" in
What are the considerations in this regard?
In the work investigation, it was found that there are problems in the construction of public infrastructure for "ordinary and emergency purposes", such as the lack of land use indicators and the difficulty of land use approval. In order to solve the difficulties and blockages in the implementation of the "level-emergency dual-use" public infrastructure project, the relevant departments and bureaus of our ministry have focused on refining and improving the support policies for the implementation of the "level-emergency dual-use" public infrastructure project from the aspects of land use plan guarantee, land supply support, planning permission management, and land use under emergency conditions.
The "Peacetime and Emergency Policy Guidelines" take "adhering to the problem-oriented, insisting on saving and intensifying, and insisting on safeguarding the rights and interests of resources and assets" as the value orientation, firstly, give priority to ensuring the land use plan of "peacetime and emergency" public infrastructure projects, and support the inclusion of "peacetime and emergency" public infrastructure projects in line with the territorial spatial planning into the list of major national projects, and configure national indicators according to the list.
Second, in view of the lack of project land use indicators, the land supply support policy should be clarified. Where the use of collective construction land is involved, the rural collective construction land may be used to construct "level-emergency dual-use" public infrastructure projects by means of shareholding, joint venture, etc.
The third is to optimize the use control tools in view of the difficulty in applying for approval of project land. In the feasibility study stage, the local natural resources authorities should actively participate in the site selection of the project, focus on the elements of the red line and the bottom line, put forward constructive suggestions, and carry out comprehensive demonstration of planning and site selection as needed. In the planning permission management stage, the design purpose and flexible compatibility arrangements under different scenarios of "usual" and "emergency" of construction projects should be incorporated into the content and process of planning permission management.
Fourth, in order to support the rapid conversion of level-emergency projects, the "Peace-Emergency Policy Guidelines" clarify the policies and measures for land use of "peace-emergency dual-use" public infrastructure projects under emergency conditions. In an emergency situation, land is allowed to be used in advance for "peacetime and emergency" public infrastructure projects; At the same time, in view of the two situations involving permanent land use and temporary land, the relevant policy requirements for the approval and handling of land use and the payment of land price in installments after the end of the emergency state are proposed.
When promoting the implementation of "peacetime and emergency" public infrastructure projects, all localities also need to pay attention to:
The first is to give full play to the important role of the "one map" implementation supervision information system of land and spatial planning in the online management of the whole cycle of planning, and gradually guide the land and space content of "flat and emergency" public infrastructure to be included in the "one map" implementation supervision information system of land and space planning as required.
Second, it is necessary to strictly abide by the bottom line and pay attention to guarding against integrity risks and legal risks. Combined with the construction of the Territorial Spatial Planning Implementation Monitoring Network (CSPON), the focus is on strengthening the supervision of planning and implementation of the bottom line problems such as breaking through the red line of cultivated land, destroying the ecological environment and historical features, harming the interests of the masses, and changing the main function.
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