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 <section class="yead_editor" label="Copyright ? 2015 Yead All Rights Reserved." style=""><blockquote class="main" style="padding: 20px 15px 15px 48px; border-width: 1px; border-top-style: solid; border-right-style: solid; border-bottom-style: solid; border-color: rgb(102, 102, 102); border-top-left-radius: 5px; border-top-right-radius: 5px; border-bottom-right-radius: 5px; border-bottom-left-radius: 5px; line-height: 1.5; background-image: url(http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/qAEVTTssxDfh1YVBtgEDcQCO2m97HPtQ8PraicxKI4j4BUzd5ibD96nhRcTnvZ9iajUg9y3TxgomfaRJkZhKEtI5A/0?wx_fmt=gif); background-position: 10px 11px; background-repeat: no-repeat;">作者信息： 张勤，杭州市规划局（杭州市测绘与地理信息局），局长华芳，杭州市城市规划设计研究院，高级工程师，城市发展与历史保护研究所所长 王沈玉，杭州市城市规划设计研究院，工程师，城市发展与历史保护研究所副主任工程师 原文刊登于《城市规划学刊》2016年第1期，此为文章节选。</blockquote></section> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">关键词<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">城市开发边界；划定与实施；空间管制；多规合一；杭州<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">杭州作为住建部、国土部两部选定的城市开发边界划定工作14个试点城市之一，先后编制完成了《杭州城市开发边界划定对策研究》及《杭州城市开发边界施规划》。目前，杭州城市开发边界已经划定完成，并纳入《杭州市总体规划（2001-2020）修改》的上报成果。杭州市规划委员会已将城市开发边界的调研等相关工作纳入考核体系。在各区、各部门的积极响应下，杭州基于城市开发边界的城乡空间治理工作正在有序落地实施。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">1 城市开发边界划定与实施应关注的问题<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <ul class=" list-paddingleft-2" style="list-style-type: square;"><li>生产生活空间粗放发展，生态空间被侵蚀，需坚持保护绿水青山的底线思维</li><li>多部门管理，政策效用不足，需坚持依法行政，多规合一导向的政策线思维</li><li>重发展轻保护，重城市轻乡村，需坚持保护发展统一、城乡统筹的思维</li><li>各城市情况复杂，需坚持问题导向，详细调查，采取灵活科学的管理模式和实施策略</li></ul><p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2 杭州城市开发边界的划定与实施实践<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.1 杭州城市开发边界划定与实施的工作思路<ul class=" list-paddingleft-2" style="list-style-type: square;"><li>以法律规章为依据，划定城市开发边界</li><li>以“多规融合”为基础，保障城市开发边界科学性与准确性</li><li> 以清晰的行政事权为前提，保障城市开发边界政策实施</li><li>以地理信息平台为支撑，保障城市开发边界的高效划定与管理</li></ul><p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">基于上述思路，确定了“组织边界划定-实施调查研究-提出对策措施-开展实施行动-构建长效管理机制”的总体工作流程。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="1.0539568345323742" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXW6juuWKLLf88XyZxWYvmq9RdU4BncVFrU4xR0GUcdWkvukR0GkeibHA/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">图1 杭州市城市开发边界划定与实施总体工作流程<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.2 杭州城市开发边界的划定<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.2.1 杭州城市开发边界划定步骤与方法<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">在总体工作思路的引导下，杭州城市开发边界的划定工作又具体分为“限制要素筛选-初步划定分区-多规衔接修正”三个步骤，并结合发改、规划、国土、林水、建设、交通、文物等多个相关部门空间管理诉求，依法落实各项空间管制的要求划定开发边界，以分层研究，统筹整合的手段形成空间一张图管理。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="1.0503597122302157" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXchZicrlnbaRAIrPR6s20sL5MLtItIAfnqZ2iaBgsU3r0ucUmUkbHykhw/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> <img data-s="300,640" data-type="jpeg" data-ratio="1.025179856115108" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXN4w4AB7rNgnfpre0hQZHHokKaQxyATWYicHNPdFd1hYtHib4R8JujKJQ/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> 图2 杭州城市开发边界的要素筛选和叠合<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="0.75" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXyggjbEic283m2MTSjJrjC54Yib4Yt3Kw2yvtJB21PLeOp94TZN04rJdg/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> 图3 杭州市城市开发边界示意图<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.2.2 杭州城市开发边界划定的特点<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其一，是总规确定的六条生态的深化与具体化。深化了现行的六条生态带的空间治理措施，形成了规模上基本保持一致，管控要求上更加严格的空间治理一张图。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其二，是以“多规融合”为基础的空间最大公约数。通过杭州城市开发边界的划定统筹考虑“土地利用总体规划”、“风景名胜区规划”、“森林公园规划”等相关规划关于空间开发与保护的限制要素和空间特征，消除了空间管制要素落地过程中出现的空间界限重叠和相互矛盾的问题，求解出以“多规融合”为基础的空间“最大公约数”。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其三，保障发展空间，提高城镇化质量。杭州城市开发边界的划定为城市近期发展乃至远景发展保留了必要空间。同时，通过锁定开发边界倒逼土地利用模式的转变，有助于提高杭州的城镇化质量。 <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.3 杭州城市开发边界的实施调查研究<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.3.1 调查城市开发边界外保护利用状况, 建档备案<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.3.2 分类城市分析开发边界外空间特征与成因<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="0.75" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXyy43E9VQC1MgZRht78FUxDYOSqZwNiamZUvib2pcIlAgAPsnQpDCucPA/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">图4 开发边界外空间分类分析图<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="0.5035971223021583" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDX15bULDQeVl6hd2Fh63ouPw0AOQsB3seibyp9d2vqfcQ7KOzPTuica82w/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.4 杭州城市开发边界实施的对策与措施<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.4.1 基于规划工作方法的转型制定实施对策<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">（1）协同规划，分区实施<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">（2） 调查工作精细化、实施措施精准化<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">（3） 注重实施工作的落地、可操作性<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.4.2 基于分类治理的思路制定实施措施<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">规划从“审批许可与否”与“空间适建性”两个维度对现状图斑进行梳理（图7），提出治理分类，总体分为拆除与留用提升两大类，如图8所示。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="0.75" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXRLnMdaALTSl8Lgt0O7JLjpsvxCJ5jibrarS5Y11DRs5P2YFicuju6TYg/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> 图7 分类治理评价原则示意图<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="0.5575539568345323" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXEvxF6g1F25Trqwc3Fx0fXREibuEQpaNzFgicJTEotbicib0eib7OPw9Zicgg/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> 图8 分类治理措施<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="0.75" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXd9nUibP8BLPFYzSyXCIPiadtq0Y5PXxP8QxCPXRDKh0gicjLgMJpibjCFw/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> 图9 优化提升的村庄分类分布图<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <img data-s="300,640" data-type="jpeg" data-ratio="0.3830935251798561" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXR5Q8bce4llCLI3aDSlrjia10kb9Am1ic7X6Bsa0YS08cl13HnhVRqJzw/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> <img data-s="300,640" data-type="jpeg" data-ratio="0.44964028776978415" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDX6xszKedLKxiaYDVDJibzT0qT5OgMlNg2407BDYJeNUFOuXVibVFibSopiaQ/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> <img data-s="300,640" data-type="jpeg" data-ratio="0.5557553956834532" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXpWsDqAWoms00gneY7XtBwjF1PyzicfzVbaRAs59icIicrDplvEoQ3K8Nw/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.5 杭州城市开发边界的实施行动计划<ul class=" list-paddingleft-2" style="list-style-type: square;"><li>各区落实分类治理措施，推进开发边界实施工作</li><li>审批程序不全、已批未建的项目采用“一事一议”多方协商的方式确定</li><li>启动开发边界外已有控规的核对调整工作，确保开发边界管控要求落地，实现长效管理</li><li>推进“郊野公园”的规划与建设，促进现代农业发展，增强休闲游憩功能，实践三生融合</li><li>加强村庄“质与量”的管理</li></ul><p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="0.6654676258992805" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXuAITwWibwqNSyR5hDmSBbBU4cANfRmYY7KJmgr49sj8JOF0VJvibrmBw/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> 图10 杭州余杭区已建项目分类治理措施图<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><img data-s="300,640" data-type="jpeg" data-ratio="0.8039568345323741" data-w="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/pe8CuSR9OF6ia8v2ftN4OibjqBZIy8NBDXuXNibt9Javib33BYzkhlGg9ten5SNiaM8InTFuMKFvAKpwOBgORnKs4Hg/640?wx_fmt=jpeg" style="box-sizing: border-box !important; word-wrap: break-word !important; width: auto !important; visibility: visible !important;" /> 图11 杭州郊野公园规划建设分布图<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">2.6 杭州城市开发边界的长效管理机制<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">完善杭州地理信息技术平台，健全日常的监督监管机制，制定法规依法管理，实现开发边界实施管理长效化和常态化。一是基于杭州市地理市情监测平台建设“一张图”数据中心，利用GIS技术，定期开展卫片检查，强化对开发边界外生态空间的动态监控管理和定期评估。根据评估结果，将开发边界外保护利用情况纳入市政府对区、县政府的考核事项；二是通过人大立法形式确立开发边界在城市空间管控方面的效力与地位，规范开发边界调整、管理、监督等程序，明确开发边界内外的规划与建设项目审批、督察执法、实施评估等一系列工作的管理职责与权限。相关部门加强协同配合，建立城乡规划布局、土地利用管理、建设项目审批和财税制度互相支持、协调一致的开发边界实施政策；三是加强宣传引导，鼓励社会各界广泛参与开发边界的实施与监督管理，形成人人关心、大众参与的良好局面。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">3 城市开发边界划定与实施工作的价值与意义<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">3.1 城市开发边界划定与实施对杭州未来城市发展的意义<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其一，划定生态底线，保护生态格局，建设美丽杭州。通过划定城市开发边界落实绿水青山的生态保护要求，避免城市建设吞噬耕地和生态空间，主动构建城市与大自然和谐共生的美丽中国先行区。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其二，调控用地总量与空间形态，提高边界内土地绩效，促进空间永续利用。通过城市开发边界控制城市空间无序蔓延，以总量控制引导边界内空间高效集约利用，以形态优化提升土地的经济效益。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其三，引导资源配置，优化城市治理，支撑杭州一体化发展。通过划定开发边界引导基础设施及公共服务设施的布局，进一步加强萧山、余杭、富阳融杭格局。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其四，形成管理合力，推动多规融合，探索空间一张图管理。通过划定开发边界统筹并落实众多空间管制政策，明确法律法规的空间界线，解决规划打架问题，构建依法治国体制下的城市空间治理的新框架体系。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">3.2 城市开发边界划定与实施的价值体现<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其一，以提高治理能力为目标，实现职能上的多部门融合。城市转型发展对城市治理与政府职能转变提出了新要求，城市开发边界是促进城市转型发展、实现城乡统筹和区域协调发展的重要的政策边界。划定与实施城市开发边界，不是专业技术工作，而是提升政府治理能力的体制改革和机制创新。现行的土地管理、财政制度、建设审批等相关政策制度不足以支撑杭州开发边界的实施，需要在实践中与政府职能的转变相结合，打破各自为政的传统治理模式，构建共同目标和协同治理的新局面。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其二，以依法行政为目标，实现空间上的多规融合。杭州把开发边界划定与实施作为推进依法行政的重要途径，构建法规政策保障长效管理机制，研究各项法规，落实空间管制的要求，协调空间管制要素落地过程中出现的界限重叠等矛盾问题，奠定了多规合一的基础。杭州完善的地理信息平台是城市开发边界划定与管理的基础。杭州在开发边界的划定中，利用GIS技术，实现法定空间管制要素落地，为分层研究提供了技术保障；基于杭州地理市情监测平台，建立“空间一张图”数据的管理支撑平台，为实施对开发边界的动态监控与定期评估提供常态化管理支撑。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">其三，以可持续发展为目标，实现功能上的三生融合。随着城镇化发展，对生态空间和开发边界外保护与管理的认识不断提升。在以往的实践中，我们对生态空间采取简单划一的“禁建”，疏于引导和激励，导致生态保护区域常常违建严重、基础设施落后，保护区成了问题区。通过对国际国内有关城市开发边界实践经验的梳理和解读，我们清晰地认识到，要充实更新对开发边界的认识。要转变固有思路，积极创新管理，坚持让开发边界以外的区域环境“只能更好不能更坏”，体现出“绿水青山就是金山银山”。以杭州良好的生态本底为基础，通过“控、减、融、活”多措并举，实施积极保护。通过立法保障、分类分区严“控”界外城市建设活动，逐步“减”少边界外城镇建设量，合理“融”入城市功能，积极发挥生态空间的综合效益，激发公众参与、多元化保护“活”力，最终促进城乡三生空间的融合发展。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">4 结论<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">开发边界的划定与实施是一项长期而持续的工作，迫切需要健全和保障开发边界长效管理机制。杭州作为试点，在城市开发边界的划定与实施工作方面先行先试，做出了有益探索。随着杭州城市开发边界实施工作的有序推进，将实现开发边界的制度化、长效化和常态化管理。城市开发边界的有效实施将促进城市从外延式扩张向内生增长转型，提升存量空间的利用效率，优化城市空间结构，构建点线片贯通，内外融合，覆盖全域的生态空间体系，以整体促进城市的三生融合。杭州城乡空间将实现开发边界内集约高效，开发边界外保生态、提效益、优景观等发展目标，建成生态景观秀美、城乡统筹协调、空间集约高效的美丽中国先行区，续写生态文明的新篇章。<p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); line-height: 25.6000003814697px; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);">注：本文分享自《城市规划学刊》微信公众号，特此鸣谢。<hr style="max-width: 100%; color: rgb(62, 62, 62); line-height: 25.6000003814697px; white-space: normal; font-family: 微软雅黑; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);" /><p style="max-width: 100%; min-height: 1em; white-space: normal; color: rgb(62, 62, 62); line-height: 25.6000003814697px; font-family: 微软雅黑; text-align: center; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"> <p style="max-width: 100%; min-height: 1em; white-space: pre-wrap; color: rgb(62, 62, 62); 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