“双碳”目标下可再生能源发展规划实施的用地困境及其纾解  

Land use dilemmas of implementing renewable energy development plans under the ‘dual carbon’ goals and their countermeasures

作　　者：刘明明[1] LIU Mingming(College of Humanities and Development,China Agricultural University,Beijing 100083,China)

机构地区：[1]中国农业大学人文与发展学院,北京100083

出　　处：《中国人口·资源与环境》2022年第12期21-30,共10页China Population,Resources and Environment

基　　金：2021年度法治建设与法学理论研究部级科研项目“融合与创新:实现碳达峰、碳中和目标的市场法律机制研究”(批准号:21SFB2029)。

摘　　要：在国土空间用途管制和生态环境分区管控背景下,如何保障可再生能源大规模开发的用地需求是实施可再生能源发展规划亟待解决的问题。中国可再生能源发展规划的实施尚面临国土空间约束、土地利用冲突、生态环境约束、邻避效应等多重困境。在中东部地区,国土空间约束主要表现为可再生能源用地的来源稀少,应当重点通过国土空间的立体化开发以及污染地块和矿山废弃地的再利用拓展可再生能源大规模开发的用地来源。在西部地区,虽然有较大面积的未利用地,但囿于生态保护红线约束或电网、储能等基础设施薄弱,可再生能源大规模开发用地的有效供给尚显不足,应当重点通过建立可再生能源规划区制度和完善生态保护红线制度实现可再生能源发展规划与国土空间规划、生态环境分区管控之间的协同。风能、光伏和太阳能热利用等可再生能源发电主要通过改变土地利用方式对生态环境产生影响,进而可能导致生物多样性、水土保持等生态系统服务的损失。为避免或降低可再生能源开发带来的生态环境影响,应当实现可再生能源发展目标与生态环境保护目标的协同,建立健全生态环境、自然资源、能源等主管部门相互协作的可再生能源开发管理体制以及与生态环境保护要求相适应的可再生能源开发管理机制。可再生能源发电设施的建设和运行可能给社区居民带来噪声、采光、景观、开放空间和休闲娱乐等方面的不利影响,进而产生邻避效应。可再生能源开发利用邻避效应的治理需科学制定标准,规制可再生能源发电对周边居民的不利影响;完善可再生能源开发利用的公众参与机制,尊重利益相关者;建立可再生能源发展的惠益分享机制,以共赢破解邻避难题。Under the background of land use control and ecological environment zoning control,how to ensure the land demand for large-scale renewable energy development has become an urgent problem to be solved in the implementation of renewable energy development plans.The implementation of renewable energy development plans in China is still facing dilemmas from land space constraints,land use conflicts,ecological environment constraints,and‘Not in My Backyard’(NIMBY)effect.In the central and eastern regions,land space constraints are manifested in the scarcity of renewable energy land sources.Land sources for large-scale renewable energy development should be expanded mainly through the three-dimensional development of land space and the reuse of contaminated and mine waste lands.In the western region,although there is a large area of unused land,the effective supply of land for large-scale renewable energy development is still insufficient due to the constraints of the ecological protection red line or the weakness of the power grid,energy storage,and other infrastructures.The synergy between renewable energy development planning and land space planning and the control of ecological environment zoning should be achieved mainly by establishing a renewable energy planning area system and improving the ecological protection red line system.Renewable energy power generation,such as wind energy,photovoltaic energy,and solar thermal utilization,has an impact on the ecological environment mainly by changing the way of land use,negatively affecting biodiversity,water and soil conservation,and other ecosystem services.To avoid or reduce the impact of renewable energy development on the ecological environment,China should realize the synergy between the goals of renewable energy development and ecological environmental protection,and establish a sound management system for renewable energy development with the collaboration of the competent departments of ecological environment,natural resources,and energy,as well as a manage

关 键 词：可再生能源发展规划 国土空间约束 生态环境约束 土地利用冲突 邻避效应 

分 类 号：D912.[政治法律—法学]