多规合一视角下县域永久基本农田划定方法与实证研究

科学合理划定县域永久基本农田是当前中国为提高国家粮食安全保障能力、保障农民切实利益和实施藏粮于地作出的重大战略举措。针对现行各规划间由于期限错配、标准各异、边界冲突和管理混乱造成永久基本农田"划不下、管不住、建不好、守不牢"等问题,基于"多规合一"视角和顺序递进式划定思路,论文提出了一套县域永久基本农田划定的方法体系。首先,在核实地类利用状态和协调各规划冲突的基础上,将城镇周边利用等指数高于区域平均值的耕地优先划定为城镇周边永久基本农田;而后,从耕地质量条件、交通区位条件、农业生产条件和地块空间形态等方面构建多因素综合评价指标体系,在其他耕地区内利用综合得分最优法划定永久基本农田保护区域。研究结果表明:1)扣除耕地中不符合基本农田划定利用状态准则、用途管制规则和预留的开发用地,进一步提高了基本农田的稳定性和科学性;2)分步骤划定城镇周边和其他耕地区内永久基本农田,有利于合理控制城镇规模,构筑城镇绿色生态空间;3)永久基本农田方案落实了"总体稳定、局部微调、应保尽保、量质并重"的划定原则,在约束指标上满足了国家相关政策要求,在质量控制指标上也优于调整前。

Designation method and demonstration of permanent basic farmland in county level on view of multi-planning integration

Scientifically and rationally delimiting the permanent basic farmland in the whole county region is an important strategic measure for China to ensure the national food security capacity, guarantee farmers'' real benefits and implement the food crop production strategy based on farmland management and technological application. The contradiction among urban master planning, land use planning, ecological protection planning of water sources and wild life conservation areas greatly affect the stability and longevity of permanent basic farmland such as term mismatch, the different technical standards, the land type border clash and the confused management regulations of the current planning. It is difficult for the policy makers, planner and farmers to plan, manage and build the protection zone of permanent basic farmland in practice. So, this study put forward a method for the delimitation of permanent basic farmland in the whole region based on multi-planning integration. First, on the basis of verifying the state of land use and coordinating the conflict of various planning, the farmland around the towns and cities with higher utilization index than the regional average is prior defined as the permanent basic farmland. Then, a comprehensive evaluation index system is constructed from the aspects of the quality of the cultivated land, the conditions of traffic location, the conditions of agricultural production and the space form of the land. This system is applied to delimit the protection area of the permanent basic farmland in other cultivated land zone by using the comprehensive score optimization method. The results show that: 1) stability and rationality of the delimiting basic farmland is further improved by deducting the reserved development land for construction projects, the cultivated land that is not consistent with the criteria for the delimitation of basic farmland and land parcels with the rules of utilization control unsuitable for farming. 2) Delimiting the permanent basic farmland around the town and other cultivated areas step by step, which is beneficial to the rational control of town''s spatial scale, shape and landscape, also to construct the green ecological space in cities and towns.3) Lingshui county has delimited 22 224.36 hm2 of the permanent basic farmland in the whole region, which mainly located on Benhao - Timeng - Guangpo region, Longguang - Yingzhou region, Wenluo - Sancai region and the Nanfan breeding bases. The plan scheme has carried out the delimitation principles that the spatial pattern of permanent basic farmland should keep overall stability and can fine improve local parcels, prior it to protect the high quality cropland, and the quantity and quality of permanent basic farmland should be equally important. The constraint index of the plan meet the related policy requirements, and the quality control index of the plan is better than the index before adjustment. The delimitation scheme of the permanent basic farmland is basically reasonable. The method proposed in this research can not only implement the national territory utilization control regulation by means of the multi planning integration, but also provide a new reference for improving and deeply developing the prime farmland delimitation in the future.