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<section style="background-color: rgb(255, 255, 255);box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;overflow: hidden;font-size: 14px;box-sizing: border-box;"><section class="" style="display: inline-block;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: top;width: 4em;height: 4em;border-radius: 50%;background-image: url("http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaER2uofI6WjGKv09q0kAsp87rYkqlNiau4gNYyrCXGYKfnibibLGesl1NouOv86eTibticxxicF5HD33mw/0?wx_fmt=png");background-position: center center;background-repeat: no-repeat;background-size: cover;box-sizing: border-box;"><section class="" style="width: 100%;height: 100%;overflow: hidden;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaER2uofI6WjGKv09q0kAsp87rYkqlNiau4gNYyrCXGYKfnibibLGesl1NouOv86eTibticxxicF5HD33mw/0?wx_fmt=png" style="max-width:100%;" /></section></section><section style="width: 100%;margin-left: 1.2em;margin-top: -1.2em;box-sizing: border-box;"><section style="float: left;white-space: nowrap;overflow: hidden;display: inline-block;vertical-align: middle;height: 2em;margin-left: 1em;border-bottom-left-radius: 1em;border-left: 1px solid rgb(25, 55, 136);border-bottom: 1px solid rgb(25, 55, 136);max-width: 85% !important;box-sizing: border-box;"><section class="" style="margin-left: 1.5em;line-height: 1.5;padding-right: 0.5em;font-size: 11px;color: rgb(56, 30, 5);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">点击蓝字关注公众号</p></section></section><section style="float: left;width: 5%;margin-left: -1px;box-sizing: border-box;"><section style="width: 6px;height: 6px;margin-top: 1.82em;border-radius: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section><section style="clear: both;box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(25, 55, 136);padding: 10px;box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="color: rgb(56, 30, 5);box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">广州市城市规划勘测设计研究院规划设计一所副所长、高级工程师何冬华<span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;"></span><span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">在《规划师》2017年第8期撰文，指出</span><span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">生态空间区界划定与管理是空间规划的重要内容，国内城市多将生态控制线作为控制城乡建设无序蔓延、引导</span>生态空间健康发展的工具，但其划定仍以单一部门为主导，缺乏统筹融合。文章以广州生态控制线划定工作为例，发现城<span style="letter-spacing: 0px;box-sizing: border-box;">市生态结构到生态空间边界的落地控制难的主要原因在于生态用地与建设用地的邻避退让、各级政府及相关部门之间的博</span><span style="letter-spacing: 0px;box-sizing: border-box;">弈平衡等。为此，提出要树立生态空间的“多规融合”思维，建立一套“图”“则”并存的共赢管控规则。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;font-size: 13px;box-sizing: border-box;"><section class="" style="width: 100%;height: 5px;background: -webkit-linear-gradient(left, rgb(25, 55, 136), rgba(255, 247, 234, 0)) white;box-sizing: border-box;"></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="font-size: 12px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[关键词]生态控制线；生态空间；多规融合；广州</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[文章编号]1006-0022(2017)08-0057-07　</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[中图分类号]TU981　</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[文献标识码]B</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[引文格式]<span style="letter-spacing: 0px;box-sizing: border-box;">何冬华．生态空间的“多规融合”思维：邻避、博弈与共赢 — 对广州生态控制线“图”与“则”的思考[J]．</span><span style="letter-spacing: 0px;box-sizing: border-box;">规划师，2017(8)：57-63</span></p></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/2Bty8509rhI7cawjr8P45GLGqPo7MxHUC224elTooJwPGU0GJ10KezZicgXDZDycm1c0ZkQuakueqnicsXcWy2ZQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">自党的“十八大”将生态文明建设纳入“五位一体”<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">发展体系，并在十八届三中全会提出划定生态保护红</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">线以来，国内有关部委及各省市陆续开展了城市生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">空间的边界管控工作，如广东省进行了生态控制线划</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">定工作。生态空间管控主要为实现两个目的：一是保</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">护重点生态要素，二是控制城市开发建设无序蔓延。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态保护红线作为中央政府的刚性管控事权，管控最</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">重要的生态空间(很多大程度上是城市生态安全的底</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">线 )；生态控制线多作为地方政府辅助城市治理的工</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">具，控制城市无序蔓延的同时预留弹性，在很大程度</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">上是城市建设拓展的底线。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">国内各省市开展的生态空间边界管控工作的主<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要实践有 3 类：第一类以深圳、长沙、东莞和嘉兴</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">等城市为代表</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">，通过对生态要素的叠加，划定生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态控制线，重点关注城市增长控制，但对如何发挥</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态控制线的生态功能研究不足。例如，深圳市通</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">过六大类生态要素的叠加划定基本生态控制线，将</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">其作为一个相对“均质”的区域实施刚性管控，禁</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">止建设。但其在生态控制线划定时已覆盖了相当规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">模的旧村、旧厂等现状建设用地，引发了对基本生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态控制线生态保育功能和结构科学性的质疑，线内</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">社区也表现出比较强烈的抵触情绪</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"> 。第二类以上</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">海、武汉和重庆等城市为代表，基于生态格局优先</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">视角，开展城市整体生态网络规划，划分各类生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">空间，并划定生态控制线，但对城乡空间增长限定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的关注不足</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。例如，上海市开展基本生态网络规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划，构建市域“环、廊、区、园”的生态空间体系，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划分中心城绿地、市域绿环、生态间隔带、生态廊</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">道和生态保育区等生态空间类型，在此基础上划定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态底线，提出生态空间控制导则</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">；成都市通过</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">选取对全域生态空间格局具有重要影响的关键控制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要素划定生态控制线，实施综合管理，制定分区分</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要素管控措施</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">；武汉市编制全市生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">框架控制规划，确定市域和都市发展区</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">合理的生态用地总量，提出各类生态框</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">架要素的管控要点，并划定基本生态控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制线</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">，基本集中于生态要素空间的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">研究。第三类以江苏省、湖南省等开展</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的生态保护红线划定为代表</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">，基于</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态服务功能划定生态底线空间，重点</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">关注生态功能分区管理与数量指标，对</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">整体生态网络和城乡空间统筹发展考虑</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">不足。例如，江苏省根据生态系统服务</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">功能重要性评价，在省级层面确定不同</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">区域的主导生态功能，划定了占省域面</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">积约24.75%的生态红线</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">相关研究基于上述实践经验总结，<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">从生态空间的划线方法、管控政策和利</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用方式等方面进行了研究探索，如陈群</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">弟、赵广英、陈伟劲等人认为在划线方</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">法上要协调保护和发展的需求，在考虑</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城镇开发动力和生态保护平衡的基础上</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划定生态控制线，强调从“满足总量、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">刚性控制、被动倒逼”向“量质并重、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">刚弹结合和主动引导”转变</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">；盛鸣、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">詹运洲、李兰昀、陈静、龚蔚霞等人认</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">为在管控政策上应当建立保护与发展的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">共赢策略，建立生态线的分级分类管理</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">机制，加强动态调整机制、生态补偿机</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制、社区发展转型机制和资源利用机制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">等配套政策的制定，建立协调、统一</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的实施管理构架，制定跨部门分类引导</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">策略</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">；李明晶、段翔和汪云</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">等人认为要加强对生态控制线内的资源</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">利用研究，开展公园建设和发展生态休</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">闲产业</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">综合梳理生态空间边界管控的实践<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">经验和已有相关研究，关注点多集中在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市增长控制、生态安全格局构建或生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态要素保护等某一方面，真正统筹融合</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城乡生态空间的实践很少，缺少对生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护空间与城乡建设空间的博弈平衡研</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">究，在划线方法上偏重单一部门主导，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">缺乏多部门协同和“多规融合”，导致</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">发展与保护的共识难以达成。因此，亟</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">需加强城乡生态空间融合、“多规融合”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">等视角的研究。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">广州从 2000 年以来开展了大量的<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市生态空间规划工作，始终坚持生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护与城市发展的互动，城市生态结构</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">不断延续，重要生态要素得到长期保护，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">并逐步推动生态空间边界的细化、落地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">和立法保护</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">，主要有3个阶段：在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">2000年前后，广州开展了战略规划，提</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">出构建“山、城、田、海”山水型生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市的战略目标和“三纵四横”的区域</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态廊道，随后的城市总体规划及绿地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">系统规划等提出了更加具体的生态城市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">建设目标及区域廊道划定方案；从2010</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">年开始，广州在城市总体规划修编及“三</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规合一”的工作过程中，整合重要生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用地，提出生态控制线，尝试明确城市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态空间的边界管控；2014 年以来，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">根据国家、广东省关于生态空间划定的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">有关要求，市属相关部门陆续开展了多</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">项划线工作，包括城市生态控制线、生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态保护红线、林业生态红线和生态廊道</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控制线等。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">笔者在参与广州生态控制线划定的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">过程中，认为应对多个管理部门同时推</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">进相关研究与划线工作，探讨如何应对</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">多部门联动编制，实现生态空间管控的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">“多规融合”，对我国城市生态空间边</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">界管控工作实践和相关研究具有重要借</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">鉴意义。总体来看，要实现生态空间的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">“多规融合”，首先必须处理好生态空</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">间与建设用地的邻避关系、职能部门的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">博弈平衡这两个前置条件，进而实现规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">则统一的区界管控。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section class="" style="background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">一  <span style="letter-spacing: 0px;line-height: 1.45;box-sizing: border-box;"></span> </strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">邻避的逻辑：误解为城市建设的<span style="letter-spacing: 0px;box-sizing: border-box;">“紧箍咒”</span></strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="line-height: 1em;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;transform: rotate(0deg);width: 1em;height: 1em;padding: 0.2em;border-width: 0.14em;border-style: solid;border-color: rgb(25, 55, 136);background-color: rgb(254, 255, 255);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section><section style="display: inline-block;vertical-align: middle;width: 100%;height: 0.14em;margin: 0px -1em;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: middle;width: 1em;height: 1em;padding: 0.2em;border-width: 0.14em;border-style: solid;border-color: rgb(25, 55, 136);background-color: rgb(254, 255, 255);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section></section><section class="" style="padding: 0px 0.5em;margin: -0.14em 0px -0.21em;box-sizing: border-box;"><section class="" style="border-width: 1px;border-style: solid;border-color: rgb(25, 55, 136);box-sizing: border-box;"><section class="Powered-by-XIUMI V5" powered-by="xiumi.us" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><section class="" style="padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">对于生态空间与建设用地的关系，<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">原则上是通过划定生态空间管控区界，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">防止城乡建设用地无序蔓延，引导城市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">持续发展及精明增长，但前提是不能制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">约城市重要项目落地，不能影响城市发</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">展空间预留。这种典型的自我矛盾，本</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">文称之为生态空间的邻避现象。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="letter-spacing: 0px;box-sizing: border-box;">误解生态控制线为城市发展的</span></strong><strong style="letter-spacing: 0px;box-sizing: border-box;">门槛石</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" powered-by="xiumi.us" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><section class="" style="padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">这种邻避现象具体表现为城市增长<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">与生态管控的矛盾冲突不断呈现，原因</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">主要有两点：一是地方政府依赖“空间</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">拓展”来实现城镇发展；二是城市规划</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的监督管理及生态空间管控不断加强。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">首先，地方政府在以经济建设为中</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">心及 GDP 考核体制下，空间拓展成为</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">快速城镇化的重要表现，并深度依赖于</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市建设用地的增加。应对这种 GDP</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">崇拜，地方政府更多地关注城市空间拓</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">展与土地利用的增量，在处理城市发展</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用地与生态用地之间的矛盾关系时往往</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">优先保证建设用地。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">其次，在城市规划的监督管理不断<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规范与加强的情况下，一些建设项目谋</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">求突破规划的难度越来越大，如住建部</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">利用卫星遥感技术督查城乡规划后，建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">设用地侵占城市绿地的现象得到一定抑</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制。为应对这种规划权威性不断加强的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">现象，城市发展与建设的主体多希望本</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">区域内绿地控制与生态控制线的量能少</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">则少。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）<span style="letter-spacing: 0px;box-sizing: border-box;">守不住的生态结构，始于退避</span><span style="letter-spacing: 0px;box-sizing: border-box;">建设用地</span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" powered-by="xiumi.us" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><section class="" style="padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">生态控制线划定的目的之一是维育<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">良好的城市生态空间框架，控制城市无</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">序蔓延和保持城乡可持续发展。从霍华</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">德设想的田园城市结构，到伦敦的环城</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">绿带，再到武汉探索的楔形生态结构、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">成都推行的“198”地区，都关注如何</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">维育一个良好的生态空间结构。广州早</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">在 2000 年的战略规划就提出建立“三</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">纵四横”的生态廊道并沿用至今，在其</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">后的城市总体规划、各项专项规划中都</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">以“三纵四横”作为生态空间的主骨架，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">希望优化“山、城、田、海”空间格局，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">促进组团型城市的构建。虽然生态理想</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">美好，且广州对于廊道的规划控制意图</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">也非常明确，但在实际的开发建设中却</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">常常受到侵蚀与破坏。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">案例一：广州南站地区挑战城市生<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态廊道。2003 年，广州编制了《广州</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">市番禺片区生态廊道控制性规划》及番</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">禺钟村岭南水乡规划研究等，以促进城</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">市生态廊道落地。2003 年底广州南站</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">却选址于“三纵四横”中两条生态廊道</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">交汇的敏感地区，并在站点周边划出了</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">约5km2 的集中建设区，编制了《广州</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">南站地区控制性规划》，以引导建设开</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">发。为应对城市生态廊道被侵占，这一</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">事实只能在规划方案上提出了生态廊道</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">重构理念，不知其中是否有掩耳盗铃的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">意味。更值得思考的是，生态廊道规划</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">遇见城乡发展规划后就自动失效，那生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态廊道控制性规划是否具有法定地位？</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">案例二：法定地位固然是主要因素，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">更重要的是对生态管控的误解而导致的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">邻避应对编制的。例如，广州金山大道</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态廊道是“三纵四横”生态廊道体系</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">中的“四横”之一，并在 2009 年《番</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">禺区四条快速路绿化廊道控制性详细规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划》中将道路两侧100 　 m范围划为严格</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护地带，禁止开发建设。尽管有了法</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">定规划，但实际上金山大道廊道也抵抗</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">不住城市发展与开发建设的压力，中部</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的钟村至石楼段受城市建设用地的侵蚀</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">比较严重，部分绿地被不断蚕食，导致</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">廊道破碎、东西向连接性较差。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="text-decoration: none;box-sizing: border-box;">（三）<span style="text-decoration: none;letter-spacing: 0px;box-sizing: border-box;">越画越小的控制线，源于“指令式”的技术准则</span></span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="padding: 0px 4px;box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">观察国内城市在生态控制线、生态<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护红线等的划定案例发现，案例都会</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">关注其数量比例关系。例如，广东省在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">2014 年发布了生态控制线工作指引，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">将全省城市分为3类，分别要求生态控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制线的比例不能低于全域面积的50%、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">60%、70%，而广州属于第一类，即不</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">能低于50%。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">案例一：从广州生态控制线的规划<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">研究至划定管控过程看，生态空间比例</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">逐次递减。2010 年，《广州市城市总</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">体规划 (2011—2020 年 )》提出将广州</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">市域面积 69% 的土地划入基本生态控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制线，保护和形成 5140km2 的非建设</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用地；2011 年，《广州市生态专项规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划》提出市域基本生态控制线面积约为</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">5000km2 ，约占市域面积的67%；2013</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">年，广州市“三规合一”工作划定基本</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态控制线总面积为 4508km2，约占</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">市域面积的60%；2015年，《广州市城</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">市生态控制线划定工作方案》要求划定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态控制线总量为市域面积的55%。上</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">级主管部门一个“派单式”的指引，似</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">乎就能挑战城市的生态理想，可见生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">空间的维育与管控压力重重。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">案例二：广州北部某区，原来定位<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">为广州“北优”战略的区域，生态资源</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">禀赋好，规划建设用地仅占全区面积的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">8.6%，在 2012 年广州“三规合一”、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">2015 年广州生态控制线工作方案中分</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">别划定占全区面积88%、80%的生态控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制线，而区规划主管部门认为比例过高，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">影响未来发展空间，因此不断缩减生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控制线面积至占全区的 78%。该区始</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">终认为生态控制线是阻碍城市发展的门</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">槛，从此种认识出发划定的生态控制线</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">只能解决有无的问题，而难以作为引导</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城市精明增长的开发控制界线。尽管生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态控制线比例的多少不能全部反映城市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态空间的作用，但过低的比例似乎也难</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">以达到控制城市蔓延与优化城市空间结构</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的作用。</span></p></section></section></section></section></section><section class="" style="line-height: 1em;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;transform: rotate(0deg);width: 1em;height: 1em;padding: 0.2em;border-width: 0.14em;border-style: solid;border-color: rgb(25, 55, 136);background-color: rgb(254, 255, 255);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section><section style="display: inline-block;vertical-align: middle;width: 100%;height: 0.14em;margin: 0px -1em;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: middle;width: 1em;height: 1em;padding: 0.2em;border-width: 0.14em;border-style: solid;border-color: rgb(25, 55, 136);background-color: rgb(254, 255, 255);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(25, 55, 136);box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/2Bty8509rhI7cawjr8P45GLGqPo7MxHUC224elTooJwPGU0GJ10KezZicgXDZDycm1c0ZkQuakueqnicsXcWy2ZQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: middle;padding-right: 6px;box-sizing: border-box;"><section style="margin: 0px -6px -9px auto;border-right: 2px solid rgb(13, 0, 21);border-top: 2px solid rgb(13, 0, 21);height: 16px;width: 16px;border-bottom-color: rgb(13, 0, 21);border-left-color: rgb(13, 0, 21);box-sizing: border-box;"></section><section class="" style="background-color: rgb(25, 55, 136);padding: 0px 6px;font-size: 19px;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">二</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">博弈的核心：发展与保护的双重</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">话语权</strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(33, 71, 215);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">综合分析生态空间在划定与保护过<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">程中的问题，主要包括两大方面：一方</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">面是生态空间的邻避现象，即生态空间</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划定不断让步于建设用地扩张；另一方</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">面则是生态空间内部多头管理、权责不</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">明，导致生态空间保护乏力的现状，可</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">概括为外部与内部的博弈。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span>博弈的类型<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">从广州市多年来生态空间保护与发<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">展的历程看，在生态空间划定与管控中</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">一直存在着两种类型的博弈：一种表现</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">为生态空间与建设用地布局之间的外部</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">博弈；另一种表现为生态空间的内部博</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">弈，即生态空间内部各种生态要素因为</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">其管理部门不同且缺乏协调统筹机制，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">带来多头管理、责权不明和管理边界交</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">叉重叠等现象，导致某些生态空间出现</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">多个行政许可，某一部分生态空间又遗</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">漏为管理真空地带，为生态空间的有效</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护带来困难。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">(1) 外部博弈：建设用地的扩展与<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态空间的“瘦身”。生态空间从某种</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">意义上是限定城市建设空间发展的“底</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">线空间”，因此在快速城市化进程中不</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">断受到城镇建设用地扩张的冲击。以广</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">州市为例，1986 ～ 2014 年广州市域建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">设用地呈现从中心向外围快速扩张的态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">势，建设用地以年均56km2的速度增长，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">而生态用地则以年均 40km2的速度递</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">减，城乡结合部、规划廊道地区的非建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">设用地明显减少。在 2014 年广州市域</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态要素约 4400km2，划线的过程中</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">剔除建设图斑约 300km2，生态控制线</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划定仅有 4100km2，其中剔除的建设</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">用地具体为：现状建设用地 45km2 、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">现行土规规划建设用地15km2 、村庄</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规划建设用地约 8 km2、省市重点项目</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">79km2、总规适建区 170km2。城镇建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">设用地的快速扩展带来生态空间的不断</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">瘦身，两者之间的博弈因生态空间边界</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">缺乏刚性和有效的实施保障而不断被突</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">破。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">(2)内部博弈：生态要素的“打架”。<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">从生态空间内部看，国内条块分割的行</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">政管理体制也造成了各类生态要素划定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">与管理的博弈，包括自然保护区、森林</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">公园和湿地公园等生态要素在管控规则</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">方面的“打架”，带来生态空间保护与</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">管理力度的降低。例如，国内关于湿地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的管控规定超过4个，包括林业部发布</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的《湿地保护管理规定》《国家湿地公</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">园管理办法 ( 试行 )》，住建部发布的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">《国家城市湿地公园管理办法》，《中</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">华人民共和国自然保护区条例》中针对</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">湿地自然保护区拟定的条例，各规定对</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">湿地公园的保护管理要求、建设活动管</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">理与监督及旅游活动开展条件等都各不</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">相同。又如我国自然保护区、森林公园、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">风景名胜区分属不同部门，但彼此间性</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">质混淆，“一个机构两块牌子”“一片</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">林子两个区”的情况时有发生，导致部</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">分自然保护区既被称为“自然保护区”，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">又被称为“森林公园”或“风景名胜区”，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">而其在功能区划分时，首先满足风景名</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">胜区的功能要求而将部分旅游区规划在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">自然保护区的中心区域，严重影响了自</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">然保护区的发展及对生物多样性的有效</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护。除日常管理外，在规划申报审批</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">权限上也时有混淆不清，如广州市在区、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">县级森林公园总体规划的审批权限上，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">在 2000 年公布实施的《广州市森林公</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">园管理条例》规定“市级和区、县级森</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">林公园总体规划分别由市和区、县级市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">林业主管部门审核同意后，报规划行政</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">主管部门审批”，而 2012 年公布实施</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的《广东省森林公园管理条例》第十六</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">条规定“市、县级森林公园总体规划，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">报批准设立森林公园的地级以上市林业</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">行政主管部门审批，并报省林业行政主</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">管部门备案”，两者对审批主体的规定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">不同，造成了生态要素保护规划实施难</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">度大：作为实现城市理想结构的生态廊</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">道，多停留在研究层面，缺乏相应的主</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">体责任而难以实施管控。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）</strong><strong style="box-sizing: border-box;"><span style="letter-spacing: 0px;box-sizing: border-box;"></span>博弈的根源<span style="letter-spacing: 0px;box-sizing: border-box;"></span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">生态空间存在外部与内部两种类型<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的博弈，探求其根源，一方面在于生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">空间从规划编制到管理实施整体可操作</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">性、约束力和监督机制的不足，导致其</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">“寻租空间”的存在；另一方面则在于</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态空间的管控中，主体部门分隔管理，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">对具体的生态要素管理有片段式特征，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">缺乏整体管控。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">分析生态空间与建设用地之间的博<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">弈，实际上是一个城市对于发展与保护</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">空间的安排，目前主导的话语权还是在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">政府手里。应该看到，在我国 1994 年</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的分税制改革后，地方政府获得了更加</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">独立的经济和政治权力，但也受到越来</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">越多的增长压力，“迫使地方政府演变</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">成为一个个增长饥渴、财政饥渴的竞争</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">实体”。在此背景下，地方政府逐步</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">以城市空间 ( 其核心是城市土地 ) 为城</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">市经营的主要手段和空间载体，开始了</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">与资本的增长联盟，借助境外资本、社</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">会资本，启动了大量开发区、新城、新</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">区的建设，快速地推动了城市的增长与</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">城镇化进程，并以经济指标增长为第一</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要务，建立起了中国城市的“增长主义”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">发展模式</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。在“GDP 崇拜”的考</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">核体制下，土地资源作为地方政府吸引</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">资本投资、参与横向竞争的重要元素，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">难以摆脱直接服务于增长主义的“路径</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">依赖”，往往首先成为服务于资本的空</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">间载体，从而导致了生态空间在博弈上</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的弱势地位。除了基本农田保护区、国</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">家级自然保护区等从国家层面规定的刚</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">性保护边界，由地方政府主导编制的生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态空间类规划，在缺乏有力的法律保障</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">与监督机制的约束下，往往在趋利的博</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">弈中被迫让路，在保障总量不变或大结</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">构不变的前提下都是由政府自编自改。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态空间内部的博弈，矛盾的根</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">源则在于生态空间整体管控与部门生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要素片段化管理之间的矛盾。生态空间</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护是一个全域的系统化工程，近年来</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">国家部委、各省陆续出台的生态空间管</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控的技术标准与工作要求，如环保部颁</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">布的《生态保护红线划定技术指南》，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">中共中央办公厅、国务院办公厅印发的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">《关于划定并严守生态保护红线的若干</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">意见》，都表达了划定全域生态空间保</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">护边界、建立全域综合管控机制的发展</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">趋向</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">。但由于国内长期以来的部门条</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">块化管理体制，各管理部门都是负责其</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">中局部性、片段化的生态要素的管理，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">如环保部门的水源保护区等，在长期缺</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">乏系统化的全域保护框架与主管部门指</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">导的前提下，短期内要从关注局部上升</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">到统筹全域全要素，从技术储备到管理</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">基础各方面需要补充和协调的内容非常</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">多，往往力有不逮，还需不断改进与完</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">善。例如，华东J省生态红线的规模划</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">得很小，仅占全域面积的 20% 左右，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">故在建立系统化的生态空间，限定城市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">建设空间无序蔓延等方面的作用非常有</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">限。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）</strong><strong style="box-sizing: border-box;"><span style="letter-spacing: 0px;box-sizing: border-box;"></span>博弈的应对<span style="letter-spacing: 0px;box-sizing: border-box;"></span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">应对生态空间外部与内部的博弈问<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">题，重点还是完善生态空间规划与实施</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的机制建设。对于生态空间与建设用地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">之间的博弈，重点是建立多种控制线的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">“多规融合”，并加以生态空间保护的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">公共介入机制与监督机制等，通过公民</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">社会力的回归平衡地方政府“权力”，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">强化生态环境等民众生存权与生活权的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">维护。这一“多规融合”与维护机制的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">建立，在中央政府，弱化了以 GDP 论</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">英雄的考核制度，把生态空间与环境保</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">护指标纳入地方政府的绩效考核；在地</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">方政府，则是强化生态空间保护的公众</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">参与及监督机制，如通过立法，明确生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态控制线的划定方案及应当采取论证</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">会、听证会或者其他方式征求专家和社</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">会公众的意见，以强化生态空间保护的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">公共介入。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">对于生态空间内部的博弈，则应在<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">空间上建立全域的生态保护框架共识，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">在管理上建立各部门协同的综合管控机</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制。政府应在全域引导下形成部门共遵</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的城市生态结构维育共识，同时推动政</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">府职能部门在分管的生态要素基础上，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">明晰各自要素的空间边界，形成统一的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">“共管边界”，以解决目前生态空间多</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">头管理、交叉重叠、责权不明和真空遗</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">漏等问题。同时，在管理上应理顺各相</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">关职能部门的管理权责，统筹建立生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">空间的综合管控机制，以实现生态空间</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的有效保护。</span></p></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/2Bty8509rhI7cawjr8P45GLGqPo7MxHUC224elTooJwPGU0GJ10KezZicgXDZDycm1c0ZkQuakueqnicsXcWy2ZQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section class="" style="background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">三 </strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">共赢的管控：求同存异中建立秩序<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(156, 94, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section class="Powered-by-XIUMI V5" powered-by="xiumi.us" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">尽管多个部门主导的生态空间区<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">界划定各有侧重，广州以生态控制线编</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制与管理规定的制订为牵引，与发改部</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">门、环保部门和林业部门等开展联动编</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制，探索广州市域生态空间的综合管控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">机制，推动建立各部门在生态空间结构</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">引导、边界划定和管控规则等方面协同</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的实施架构。</span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span>建立结构共识<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" powered-by="xiumi.us" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">“多规融合”的前提就是目标的合<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">一，针对生态空间的区界管控，共同的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">目标是营造利于城市健康发展的生态空</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">间结构，树立生态优先的发展理念，明</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">确城市重要的生态资源本底，从而构建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">系统性的生态空间网络。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">广州整体生态空间结构从 2000 年<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">战略规划以来不断延续与深化，始终指</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">导生态空间的区界划定与管控规则的制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">定(图1)。在战略规划确定了“山、城、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">田、海”格局和“三纵四横”的生态廊</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">道体系后，进行了市域层面构建“区域</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">绿地—生态廊道”的生态格局、都会区</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">层面构建生态廊道网络的实践(图2)。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">首先，延续城市总体规划提出的“区域</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">绿地—生态廊道组成的生态绿地网络系</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">统”，充分利用市域南北延伸的指状山</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">体绿地、河流水系，以及市域中部地区</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">缓丘、河涌、城镇组团相间的水网，在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">市域层面构建“七核九片、六廊多带”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的生态空间结构。其次，都会区作为广</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">州南北生态系统连续的关键区域，构建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">“三纵四横”的生态廊道系统。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-align: center;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0mgRic38cYDdGBGia1siaXIvqJHGNhzXeRIy1QLAVxaJbwVCN2IS7O4JY874NV2RxJH8A7OTvZ8vWRojw/0?wx_fmt=jpeg" style="max-width:100%;" /></p><p><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0mgRic38cYDdGBGia1siaXIvqJHzTrVPbl70fAXl5x4ybG4UWmY1g4oDz5YibtlW3cib9qdrcCicqcibJK2BA/0?wx_fmt=jpeg" style="max-width:100%;" /></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span>统一管控边界<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" powered-by="xiumi.us" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">目前，空间规划或“多规合一”的<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">研究工作中，往往将生态控制线、生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护红线等称为“生态底线”。作为“底</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">线”的边界应该是明确的、唯一的，尽</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">管部门之间有争划线的成分，但其共同</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的目标是对生态空间与资源要素进行有</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">效的管控，并形成统一的管控边界。在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划线过程的博弈中，主要矛盾集中在各</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">部门的技术准则与管控重点差异而带来</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的边界不同。因此，首先需要从衔接技</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">术准则、协调空间差异两个方面搭建部</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">门之间的对话平台，建立统一的空间管</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控边界。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">(1) 从归类到分级体系的建立，统<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">一技术准则。如上文所述，广州在生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">空间的管控区界划定中，也涉及到环保</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">部门、林园部门及住建部门各自划定的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态保护红线、林业生态红线及生态控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制线的协同，其中有效的“多规融合”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">方式是归类梳理各生态要素构成，建立</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">敏感优先秩序的分级管控体系(图3)，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">共同划定边界。首先是要素归类，广州</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">以生态控制线作为“多规融合”平台，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">进行生态空间构成要素整合，衔接相关</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">红线，生态控制线包含生态保护红线、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">林业生态红线Ⅰ级、部分Ⅱ级保护区域，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">纳入原有的一二级水源保护区、自然保</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">护区、主干河流、水库及湿地、风景名</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">胜区、森林及郊野公园、集中成片的基</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">本农田保护区等；同时，协调城乡规划</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的蓝线、绿线等管控边界，将主干河流、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">大型湖泊水面、主要公园、大型城市生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态绿地等纳入生态控制线。其次是分级</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">管理，在生态空间的区界划定中，对于</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">分类管理情况如下：生态控制线的构成</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">分类包括 28 个类型的构成要素，其中</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态保护红线的自然保护区、生态高度</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">敏感区等8个主要类型，林业生态红线</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的林地、森林、湿地和物种红线4个主</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要类型，以及水域等纳入一级管制区，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">其他为二级管制区，并依此限定一级、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">二级管制区内建设项目的准入。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-align: center;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0mgRic38cYDdGBGia1siaXIvqJHhe87yckMa6JAkFKfp2KdeoJBrqsAxaSNfyNO7bMAFopqjM13tJibrAQ/0?wx_fmt=jpeg" style="max-width:100%;" /></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">(2) 处理图斑差异，建立共管边界<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">( 图 4)。对于众多生态要素图斑存在边</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">界差异及相互“打架”的情况，广州在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划定生态控制线过程中，针对 5 万多</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">个图斑，区分不同的类型，采用整体纳</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">入、协同划定和评估划定3种类型进行</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">处理。对于管控部门明确、管控边界已</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划定并落实到坐标的生态要素，如自然</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">保护区、水源保护区等，在统一坐标、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">精度的基础上，将其整体纳入生态控制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">线。对于多部门交叉管控、边界不统一</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的生态要素，如主干河流、水库及水源</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">林和生态公益林等，在其主导部门划定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的边界基础上，与规划部门、国土部门</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规划建设用地协调校核后纳入生态控制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">线。最后一种类型为评估划定，包括管</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控部门明确但未划定具体边界的生态要</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">素 ( 如环保的生态敏感区 )，应根据其</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">部门的法律和法规规章，在对生态资源</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">进行范围校核、生态服务重要性或生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">敏感性评价的基础上，协调相关规划后</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划入生态控制线；另外一种情况为管控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">部门尚未明确的生态要素(如生态廊道、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">基础设施隔离带等 )，应在生态评估与</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">整体生态格局分析的基础上，协调城市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">绿线等相关规划后划入生态控制线。这</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">种由部门单向负责转向多部门统筹协调</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的转变，明确了各相关部门的管理权责，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">实现了生态空间统筹协调的目的，可促</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">进“多规融合”及在管理方式上统一管</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控边界。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p><p style="text-align: center;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0mgRic38cYDdGBGia1siaXIvqJHDlyEvjM1abFcRWt3R51aqRJn7vYatRxCb3Nugibzw0j2Bib217Vv9ptw/0?wx_fmt=jpeg" style="max-width:100%;" /></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;"></span></p></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;transform: translate3d(0px, 0px, 0px);-webkit-transform: translate3d(0px, 0px, 0px);-moz-transform: translate3d(0px, 0px, 0px);-o-transform: translate3d(0px, 0px, 0px);box-sizing: border-box;"><section class="" style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section class="" style="padding: 0px 5px;display: inline-block;background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span>形成“图”“则”共管<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">广州在生态控制线划定与优化的过<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">程中，为应对生态结构侵蚀、控制线数</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">量递减等压力，推动了生态空间的“图</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">纸”边界统一，实现了由“结构性规划”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">到“控制性划线”的转变，除此以外，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">还探索“图纸+规则”共管的转变提升，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">推动了生态控制线管理制度的建立。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">广州市在城市生态控制线划定的<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">过程中，同步制订《广州市生态控制线</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">管理规定》，按照“明确划线、建立管</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控、分工分责、规范程序、违法追究”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的思路进行立法，通过建立“一线管理，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">多部门协作”的管理机制，将生态控制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">线的管制要求提升为城市建设的基本准</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">则，实现生态空间的综合管控及其法制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">化。在《广州市生态控制线管理规定》中，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">明确发改部门制定与生态保护相适宜的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">产业目录，负责生态控制线内的项目准</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">入审核。国土资源和规划行政主管部门</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">负责生态控制线保护范围内城乡规划的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">组织编制、修订调整、审查报批或报备；</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">依法监测线内土地利用及建设情况、查</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">处违法用地行为，对建设项目实施规划</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">管理，统一生态控制线内的建设管理。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">环境保护行政主管部门定期组织开展生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态控制线保护范围内的环境质量调查与</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">评估、环境监测以及组织环境治理和监</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">督生态恢复，统一负责生态控制线内的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">环境保护与治理。同时，环保、林业和</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">园林、农业、海洋、水务等行政主管部</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">门依据已有的相关法律、法规，按照各</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">自职责对自然保护区、水源保护区和森</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">林公园等法定保护区进行日常管理。通</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">过明确和理顺生态控制线管理体系，健</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">全生态控制线规划决策机制，推动生态</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控制线综合管控机制的建立与实施。</span></p><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">为了进一步推动生态控制线的落地<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">实施，《广州市生态控制线管理规定》</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">还提出建立生态补偿等实施保障机制。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要求市、区人民政府按照补偿与发展相</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">结合的原则，逐步完善生态控制线内的</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">各项扶持政策，整合各类生态保护资金，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">积极探索碳排放权交易、排污权交易、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">水权交易及开发权交易等市场化补偿模</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">式。通过创新体制机制，突出“谁保护、</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">谁受益”“谁贡献大、谁得益多”的分</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">配导向，对因实施生态保护而形成贡献</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的地区给予适当补偿，增强各地改善环</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">境质量、维护生态安全的能力。</span></p></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/2Bty8509rhI7cawjr8P45GLGqPo7MxHUC224elTooJwPGU0GJ10KezZicgXDZDycm1c0ZkQuakueqnicsXcWy2ZQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;"><section class="" style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section class="" style="background-color: rgb(25, 55, 136);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">四 </strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">结语<span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section class="" style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(156, 94, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="box-sizing: border-box;"><p style="text-indent: 2em;margin: 0px;padding: 0px;box-sizing: border-box;">生态空间管控的“多规融合”，似<span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">乎比城市规划与土地利用规划的“两图</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">合一”更加复杂，生态控制线要成为有</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">效的生态空间管控工具，应该先实现“规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">则”合一，然后再落实“图纸”合一。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">回顾广州生态空间研究历程，不缺</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">“共识”但缺“共管”，2000 年提出</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的“三纵四横”城市生态空间结构共识</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">具有开创意义。针对城市生态资源保护</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的压力，广州在城市总体规划、专项规</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">划等方面都提出了划定生态控制线的思</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">路，但始终犹疑不决而没有落实至法定</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">规划与控制层面，仅仅停留在“图纸”上，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">没有赋予生态空间法定地位和刚性管控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">要求，缺乏“共管”机制，导致生态控</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">制线陷入不断失守的困境。今天看来，</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">广州似乎是起了一个大早，却赶了一个</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">晚集，生态控制线管理规定始终没有正</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">式出台。与此同时，中央及部委层面对</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">生态文明及生态保护红线等陆续给出指</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">引与方向，要求建立生态空间的综合管</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">控机制，既是压力也是机遇，给广州在</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">这场划线竞赛中提供了一次探索生态空</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">间“多规融合”的契机。广州生态控制</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">线探索了从“结构统一”到“规则共识”</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">的生态空间管控实践，可以为其他城市</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">提供一定的参考与借鉴。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">比“图”“则”更深层面的应该是</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">社会共识的形成，如香港郊野公园的模</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">式，居民都知道哪里是生态空间和禁建</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">区域，这不仅仅是规划控制与管理的结</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">果，更多的是对生态空间的社会认知。</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">目前，广州市人民政府印发《广州市生</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">态文明建设规划纲要(2016—2020年)》</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">等文件，寄望于引导生态文明建设的社</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">会共识形成，期望其能成为生态空间保</span><span style="text-indent: 2em;letter-spacing: 0px;box-sizing: border-box;">护与利用的共识文件。</span></p></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0.5em 0px;box-sizing: border-box;"><section class="" style="max-width: 100%;vertical-align: middle;display: inline-block;overflow: hidden !important;box-sizing: border-box;"><img src="http://read.html5.qq.com/image?src=forum&q=5&r=0&imgflag=7&imageUrl=http://mmbiz.qpic.cn/mmbiz_gif/2Bty8509rhI7cawjr8P45GLGqPo7MxHUC224elTooJwPGU0GJ10KezZicgXDZDycm1c0ZkQuakueqnicsXcWy2ZQ/0?wx_fmt=gif" style="max-width:100%;" /></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="margin: 0px;box-sizing: border-box;"><section class="" style="padding: 0px 1.5em;margin-bottom: -35px;box-sizing: border-box;"><section class="" style="padding: 10px;width: 100%;display: inline-block;background-color: rgb(25, 55, 136);box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;" powered-by="xiumi.us"><section class="" style="box-sizing: border-box;"><section class="" style="text-align: center;color: rgb(255, 255, 255);font-size: 14px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">文章全文详见《规划师》杂志2017年8期</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="letter-spacing: 0px;line-height: 1.28;box-sizing: border-box;"></span></strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">《</strong><strong style="letter-spacing: 0px;box-sizing: border-box;">生态空间的“多规融合”思维：</strong><strong 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