2025-03-31
来源：Cities Volume 161, June 2025, 105932
作者：刘大海
刘大海｜中国人民大学公共管理学院教授
Abstract：
With the acceleration of population growth and urbanization, the demand for coastal land stemming from real estate, hospitality, retail, general industry, and other development activities is intensifying. This has placed growing competitive pressure on water-dependent uses—those that require a location at or near the waterfront to fulfill their functional needs—which are increasingly being displaced by non-water-dependent activities. Given the finite and non-renewable nature of shoreline resources, it has become imperative to design waterfront spatial governance policies from the perspective of water dependency. Such policies should prioritize water-dependent uses in waterfront or adjacent areas to prevent irreversible damage caused by non-water-dependent uses, which typically enjoy a broader range of location choices. Ensuring such prioritization is essential for the optimal and sustainable utilization of coastal spatial and natural resources. However, spatial decision-making that lacks appropriate evaluation often leads to environmental degradation, mismanagement, inefficient resource allocation, and losses in social equity. As such, regular land-use audits and spatial utilization analyses based on degrees of water dependency are fundamental to the formulation of effective coastal land-use control policies.
This study introduces a land-use classification framework based on the concepts of water-dependent, water-related, and water-enhanced uses, systematically considering actual spatial usage factors and relevant classification standards. Through this framework, it develops an innovative typology for coastal development land uses, grounded in the degree of reliance on waterfront proximity. Employing an integrated methodological approach that combines geographic information systems (GIS), remote sensing, targeted field surveys, and multiple reference data sources, the study constructs a dual-scale quantitative analysis method for examining spatial utilization patterns. This framework is applied to both the metropolitan coastal zone and representative shoreline segments. Specifically, spatial patterns were assessed within a 1-kilometer terrestrial buffer zone surrounding a bay area, along with four typical coastal segments, offering a “dual-scale, multi-perspective” lens to dissect and interpret spatial utilization dynamics.
The empirical findings reveal that marine-oriented land uses—comprising water-dependent and water-related functions—occupy the highest proportion of land (54.3%) within 100 meters of the shoreline, with their share gradually decreasing as the distance from the shore increases. Both the size of land parcels and the diversity of land uses decline with decreasing distance from the coast. Among all use types, water-dependent uses exhibit the largest average parcel size (5.5 hectares) and significantly lower building density than residential, water-related, and water-enhanced uses, indicating that these functions often require larger plots and are not predominantly represented through dense built structures. Regional comparisons further reveal marked spatial heterogeneity in the utilization of waterfront space within the bay area. The four case study segments allow for more granular analysis from the dual perspectives of open space and built environments, with each shoreline area demonstrating unique configurations of mixed-use development tailored to its specific developmental trajectory.
Based on the results, the study explores the regional variability and functional integration of waterfront development. In response to China’s ongoing reforms in coastal zone planning and governance, the study proposes a systematic pathway for establishing spatial governance policies in waterfront areas: “land-use classification → spatial utilization pattern evaluation → delineation of control zones → collaborative vision development → compatibility analysis → differentiated policy implementation.” At present, China is advancing a comprehensive overhaul of its territorial spatial planning system. With stringent policies aimed at maintaining natural shoreline retention and a complete prohibition on new coastal reclamation, the scientific governance and sustainable utilization of shorelines and waterfront spaces are entering a pivotal period. This study not only offers innovative perspectives for refined spatial regulation in Chinese coastal cities but also provides valuable references for best practices in waterfront development and management globally. The research was jointly funded by the Natural Science Foundation of Shandong Province, the National Natural Science Foundation of China, and the Basic Scientific Research Fund for Central Public Welfare Research Institutes.
摘要：
随着人口增长与城市化进程加快，受房地产、酒店、零售、一般工业等开发活动滨海用地需求的影响，需要位于或临近滨水位置才能确保功能实现的滨水依赖用途面临的竞争压力正逐年增大，并被迫转化为非滨水依赖用途。由于岸线资源的有限性，人们将不得不从开发活动的滨水依赖程度这一视角来考虑并设计滨水空间管控政策，尽量确保滨水依赖用途在位于或临近滨水位置上具有优先发展权，避免稀缺和不可再生的海岸空间资源和自然资源不可挽回地受到享有更广泛区位选择优势的非水依赖用途的严重损害，以确保海岸带空间资源的最优化与可持续利用。然而，不基于正确衡量的空间决策往往会导致环境污染、管理不善、资源浪费以及社会公正损失等诸多社会问题。因此，定期清查用途，开展基于滨水依赖程度的海岸带空间利用模式分析是构建用途管制政策的前提。
该研究引入水依赖（Water-dependent）、水相关（Water-related）、水强化（Water-enhanced）用途划分理念，系统考虑用途空间使用实际因素与相关分类标准，创新性构建起基于滨水依赖程度的海岸带开发用途分类体系。进而，综合采用地理信息系统、遥感技术、现场补充调查和多源参考数据，构建起城市海岸带区域与典型岸段两个尺度基于滨水依赖程度的空间利用模式量化分析方法，并对环湾1公里陆域范围及四个典型滨海地段进行了“双尺度、多视角”的空间利用模式解析。研究发现：环湾海洋用途（水依赖+水相关）用地比例在离岸100m距离内最高(54.3%)，随着离岸距离的增加而下降。用地斑块和用途多样性两者均随着离岸距离的减小而下降。其中，水依赖用途的平均用地斑块面积最大（5.5ha），且建筑密度显著低于居住、水相关与水强化用途，可能说明水依赖用途往往使用大型地块，且其空间使用并不以建筑为主要形式。区域对比则显示环湾滨水空间利用具有显著的空间异质性。四个小尺度案例区能够从开敞空间和建筑空间两个方面进行更为细化的分析, 且各岸段由于发展方向不同而存在不同组合的建筑功能混合开发。
基于上述研究结果，该研究进一步讨论了滨水开发的区域差异性与用途混合性。结合中国海岸带规划与管理改革实际，尝试提出了海岸带滨水区域空间管控政策的构建路径，即“用途分类—空间利用模式评估—管控区域划定—发展愿景协同制定—用途兼容分析—差异化施策管控”。
当前，中国正全面推进国土空间规划体系改革。在确保自然岸线保有率且全面禁止新增围填海要求下，海岸线管控和滨水空间的科学利用正迎来重要机遇期。该研究不仅为中国滨海城市提供了海岸带空间精细化管控的创新思路，也可为国际沿海地区的滨水开发与管理实践提供重要参考。研究工作得到山东省自然科学基金、国家自然科学基金及中央级公益性科研院所基本科研业务费专项资金的联合资助。
