面向国土空间规划制度的生物多样性净增益设计逻辑与工具构建

doi:10.17520/biods.2025440

摘要/Abstract

摘要：

生物多样性净增益(biodiversity net gain, BNG)要求开发活动在避免、减缓和修复生态影响后, 实现相较开发前基线可测量的生物多样性净改善。本文借鉴英国强制BNG制度与美国湿地缓解银行在规划嵌入、量化核算和场外履约方面的经验, 重点考察BNG与我国国土空间规划制度的衔接。研究发现, “三区三线”、详细规划、用途管制、国有建设用地有偿使用及“一张图”实施监督信息系统, 为BNG提供了从目标分解、许可控制到履约监管的制度接口, 但仍面临技术标准缺失、法律授权不足、部门协同不畅和市场基础设施薄弱等障碍。据此, 本文提出构建以第三次全国国土调查数据为基础的“1+N”分级分类指标体系, 探索政府监管下的国土生境银行和增益权益登记机制, 将BNG义务嵌入规划编制审批、详细规划、用途转用、土地出让和环境影响评价等环节, 并依托“一张图”实施全周期监督。由此, BNG可转化为可量化、可履约、可追踪的国土空间规划约束。

关键词: 生物多样性净增益, 国土空间规划, 用途管制, 生境银行, 制度本土化

Abstract

Background: Biodiversity net gain (BNG) requires development to deliver a measurable net improvement in biodiversity relative to the pre-development baseline after avoidance, minimization, and restoration measures have been applied.
Review Results: Drawing on the United Kingdom’s mandatory BNG regime and the United States’ wetland mitigation banking, this paper focuses on how BNG can be integrated into China’s territorial spatial planning system. The analysis shows that the “Three Zones Delineated by Three Lines for Land Use” (“Three Zones and Three Lines”) framework, detailed planning, land-use control, paid use of state-owned construction land, and the “One Map” supervision system provide institutional interfaces for target allocation, permission control, delivery, and monitoring. Major barriers remain in technical standards, legal authorization, interdepartmental coordination, and market infrastructure.
Suggestions: The paper proposes a “1+N” hierarchical and differentiated metric system based on data from the Third National Land Survey, a government-regulated territorial habitat banking system and a registration mechanism for biodiversity gain entitlements, and the integration of BNG obligations into planning preparation and approval, detailed planning, land-use conversion, land transfer, environmental impact assessment, and full-lifecycle supervision. Together, these measures translate BNG into a measurable, enforceable, and traceable obligation within China’s territorial spatial planning system.

Key words: biodiversity net gain (BNG), territorial spatial planning, land use control, habitat banking, institutional localization

郑欢 (2026) 面向国土空间规划制度的生物多样性净增益设计逻辑与工具构建. 生物多样性, 34, 25440. DOI: 10.17520/biods.2025440.

Huan Zheng (2026) The design logic and tool construction of the biodiversity net gain system under China’s territorial spatial planning framework. Biodiversity Science, 34, 25440. DOI: 10.17520/biods.2025440.

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链接本文: https://www.biodiversity-science.net/CN/10.17520/biods.2025440

https://www.biodiversity-science.net/CN/Y2026/V34/I7/25440

图/表 4

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比较对象 Comparison item	美国湿地缓解银行 US wetland mitigation banking	英国生境银行 UK habitat banking
治理目标 Governance objectives	无净损失: 以抵消湿地损失、维持生态基线为目标 No net loss: offsets wetland losses and maintains the ecological baseline	净增益: 在抵消损失后要求额外、可测量的生物多样性改善Net gain: requires additional, measurable biodiversity improvement after losses are offset
度量方法 Measurement method	功能评估法: 侧重生态功能, 科学性较强, 但评估成本较高 Functional assessment: function-oriented and scientifically robust, but relatively costly	标准化生物多样性指标: 以生境面积、质量等为代理变量, 便于统一核算和执行 Standardized biodiversity metric: uses habitat area, condition, and related proxies to facilitate unified accounting and implementation
责任转移机制 Responsibility transfer mechanism	责任转移: 开发者购买合格信用后, 后续管护责任主要由银行运营者承担 Liability transfer: after developers purchase eligible credits, the post-purchase management responsibility is mainly assumed by the bank operator	长期义务与土地绑定: 通过规划义务或保育契约锁定长期管护责任 Long-term land-based obligation: long-term management is secured through planning obligations or conservation covenants

比较对象 Comparison item	美国湿地缓解银行 US wetland mitigation banking	英国生境银行 UK habitat banking
治理目标 Governance objectives	无净损失: 以抵消湿地损失、维持生态基线为目标 No net loss: offsets wetland losses and maintains the ecological baseline	净增益: 在抵消损失后要求额外、可测量的生物多样性改善Net gain: requires additional, measurable biodiversity improvement after losses are offset
度量方法 Measurement method	功能评估法: 侧重生态功能, 科学性较强, 但评估成本较高 Functional assessment: function-oriented and scientifically robust, but relatively costly	标准化生物多样性指标: 以生境面积、质量等为代理变量, 便于统一核算和执行 Standardized biodiversity metric: uses habitat area, condition, and related proxies to facilitate unified accounting and implementation
责任转移机制 Responsibility transfer mechanism	责任转移: 开发者购买合格信用后, 后续管护责任主要由银行运营者承担 Liability transfer: after developers purchase eligible credits, the post-purchase management responsibility is mainly assumed by the bank operator	长期义务与土地绑定: 通过规划义务或保育契约锁定长期管护责任 Long-term land-based obligation: long-term management is secured through planning obligations or conservation covenants

国土空间规划工具 Territorial spatial planning tool	现行制度功能 Current function	BNG嵌入接口 BNG interface
“三区三线” Three Zones and Three Lines	划定生态保护红线、永久基本农田保护红线、城镇开发边界, 确立空间管控底线 Delineate the ecological protection redline, the permanent basic farmland protection redline, and the urban development boundary, establishing the bottom line of spatial control	红线为不可替代生态资产; 城镇开发边界内的开发活动触发BNG义务; 红线外、边界外区域作为高质量生境信用的供给区 Redlines are designated as non-substitutable ecological assets; development activities within the urban development boundary trigger BNG obligations; areas outside the redlines and beyond the urban development boundary serve as supply zones for high-quality habitat credits
详细规划 Detailed regulatory plan	在控制性详细规划中确定地块开发的强度、用途及配套要求, 是核发建设用地规划许可的依据 Determine the development intensity, land use, and supporting requirements of plots in regulatory detailed plans, serving as the basis for issuing construction land planning permits	将BNG指标作为地块控规的约束性指标, 与容积率、绿地率等并列, 从源头嵌入开发约束 Incorporate BNG indicators as binding indicators of plot-level regulatory plans, on par with floor area ratio and green space ratio, embedding development constraints at the source
用途管制 Land use control	通过分区准入清单、用途转用许可与生态保护修复制度, 实现全域全要素管控 Achieve full-domain and full-element control through zoning admission lists, land-use conversion permits, and the ecological protection and restoration system	将BNG交付义务纳入用途转用审批条件; 生态修复纳入“国土空间生态修复”的统一框架 Incorporate BNG delivery obligations into the approval conditions for land-use conversion; integrate ecological restoration into the unified framework of “territorial spatial ecological restoration”
国有建设用地有偿使用 Paid use of state-owned construction land	通过土地出让合同明确受让人的开发义务与履约责任 Specify the development obligations and performance responsibilities of the transferee through land transfer contracts	将BNG义务作为出让合同的强制性条款, 未履行者按违约处理, 必要时收回土地使用权 Stipulate BNG obligations as mandatory clauses in transfer contracts, treat non-compliance as a breach of contract and, where necessary, revoke the land-use right
“一张图”实施监督信息系统 “One Map” supervision information system	整合多源国土空间数据, 实现规划实施的动态监测与监督 Integrate multi-source territorial spatial data to achieve dynamic monitoring and supervision of plan implementation	作为BNG信用登记、交易追溯与履约监管的数字化基础设施 Serve as the digital infrastructure for BNG credit registration, transaction traceability, and compliance supervision

国土空间规划工具 Territorial spatial planning tool	现行制度功能 Current function	BNG嵌入接口 BNG interface
“三区三线” Three Zones and Three Lines	划定生态保护红线、永久基本农田保护红线、城镇开发边界, 确立空间管控底线 Delineate the ecological protection redline, the permanent basic farmland protection redline, and the urban development boundary, establishing the bottom line of spatial control	红线为不可替代生态资产; 城镇开发边界内的开发活动触发BNG义务; 红线外、边界外区域作为高质量生境信用的供给区 Redlines are designated as non-substitutable ecological assets; development activities within the urban development boundary trigger BNG obligations; areas outside the redlines and beyond the urban development boundary serve as supply zones for high-quality habitat credits
详细规划 Detailed regulatory plan	在控制性详细规划中确定地块开发的强度、用途及配套要求, 是核发建设用地规划许可的依据 Determine the development intensity, land use, and supporting requirements of plots in regulatory detailed plans, serving as the basis for issuing construction land planning permits	将BNG指标作为地块控规的约束性指标, 与容积率、绿地率等并列, 从源头嵌入开发约束 Incorporate BNG indicators as binding indicators of plot-level regulatory plans, on par with floor area ratio and green space ratio, embedding development constraints at the source
用途管制 Land use control	通过分区准入清单、用途转用许可与生态保护修复制度, 实现全域全要素管控 Achieve full-domain and full-element control through zoning admission lists, land-use conversion permits, and the ecological protection and restoration system	将BNG交付义务纳入用途转用审批条件; 生态修复纳入“国土空间生态修复”的统一框架 Incorporate BNG delivery obligations into the approval conditions for land-use conversion; integrate ecological restoration into the unified framework of “territorial spatial ecological restoration”
国有建设用地有偿使用 Paid use of state-owned construction land	通过土地出让合同明确受让人的开发义务与履约责任 Specify the development obligations and performance responsibilities of the transferee through land transfer contracts	将BNG义务作为出让合同的强制性条款, 未履行者按违约处理, 必要时收回土地使用权 Stipulate BNG obligations as mandatory clauses in transfer contracts, treat non-compliance as a breach of contract and, where necessary, revoke the land-use right
“一张图”实施监督信息系统 “One Map” supervision information system	整合多源国土空间数据, 实现规划实施的动态监测与监督 Integrate multi-source territorial spatial data to achieve dynamic monitoring and supervision of plan implementation	作为BNG信用登记、交易追溯与履约监管的数字化基础设施 Serve as the digital infrastructure for BNG credit registration, transaction traceability, and compliance supervision