国匠城工作台

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border-box;"><path d="M135.7,2.3c0,0.6-0.5,1.1-1.1,1.1s-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1S135.7,1.7,135.7,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M131.3,2.3c0,0.6-0.5,1.1-1.1,1.1c-0.6,0-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1    C130.8,1.2,131.3,1.7,131.3,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g></g></svg></section></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="padding-right: 15px;padding-left: 15px;font-size: 15px;color: rgb(107, 107, 107);box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;">【北京规划建设】是由与《北京规划建设》杂志联合推出的栏目，这里有新认知与旧经验的碰撞，新媒体与传统媒体的聚合。《北京规划建设》创刊于1987年，迄今已有32年的办刊历史。期刊强调深邃的思想性、厚重的理论性、丰富的实践性及敏锐的新闻性。【北京规划建设】系列既有严谨洗练的学术论文，也有轻松活泼的随笔。你走，我不送你；你来，无论多大风雨，我都等你。</p></section></section><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" 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normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 8px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;border-left: 3px solid rgb(160, 160, 160);border-bottom-left-radius: 0px;padding-left: 8px;background-color: rgb(250, 250, 250);box-sizing: border-box;"><section style="font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">作者：徐勤政 彭珂 甘霖 李雅 何永</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;padding: 10px;border-style: none;border-width: 1px;border-radius: 0px;border-color: rgb(62, 62, 62);box-sizing: border-box;"><section style="text-align: left;margin-right: 0%;margin-bottom: -40px;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 50px;height: 50px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="2" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="91.3,6.3 6.3,6.3 91.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="97" y1="97" x2="0.7" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;border-style: solid;border-width: 1px;border-radius: 0px;border-color: rgb(11, 10, 10);padding: 15px;box-sizing: border-box;"><section style="font-size: 15px;line-height: 1.8;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">摘要：</strong>强化生态控制线和城市开发边界的刚性管控作用是落实新一轮北京城市总体规划、推动空间规划体系改革的重要内容，而对于推进两线三区落地实施十分重要的工作就是制定管理办法、完善法规政策。本文回顾梳理了北京市划定两线三区的背景、过程和管控方式，结合管理办法的具体内容阐述了两线三区全域空间管制的政策体系和法规逻辑，这对于分区规划等规划编制、对于全国其他地区“三线划定”工作将起到引领借鉴作用。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">关键词：</strong>生态控制线 城市开发边界 管理办法 分区规划</p></section></section></section><section style="text-align: right;margin-top: -40px;margin-right: 0%;margin-left: 0%;transform: translate3d(10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 50px;height: 50px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(5px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="91.3,91.3 6.3,91.3 91.3,6.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="97" y1="0.7" x2="0.7" y2="97" fill="none" stroke="#000000" stroke-width="2" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">按照十九大关于深入推进生态文明建设的总方略，北京市以开发、保护、整治为核心，强化自然资源资产统筹管理，开展启动了一系列有示范意义的实践，划定和落实“两线三区1”即是其中之一。北京市根据自然资源部“三区三线”划定要求以及北京实际，结合城市总体规划、分区规划等工作逐步细化落实了“两线三区”边界，与此同时也不断建立和完善相应的管理办法，明确差异化的空间管控政策。《北京市生态控制线和城市开发边界管理办法》（以下简称《管理办法》）是全国首个基于全域空间管控理念出台的地方性法规文件，将规划实施标准和管理政策化、法制化、透明化，为北京市“两线三区”从技术方案到管理工具奠定法律基础。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin: 10px 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 10px;padding-left: 10px;box-sizing: border-box;"><section style="text-align: left;margin-right: 0%;margin-bottom: -25px;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 35px;height: 35px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(5px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding: 8px 15px;border-width: 0px;border-radius: 0px;border-style: solid;border-color: rgb(255, 255, 255);box-shadow: rgba(118, 178, 124, 0) 0px 0px 3px;background-position: 91.1352% 71.6959%;background-repeat: repeat;background-size: 142.169%;background-attachment: scroll;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/icKFe0wqE4eMItgrafXQdo6rTIToL34qb5fnsOYpKog2OtSEKmD52yeAZO80ZKglRN7BecwPcscIhCJF410iciciaw/640?wx_fmt=gif");box-sizing: border-box;"><section style="text-align: justify;font-size: 18px;color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">工作简介</strong></p></section></section></section><section style="text-align: right;margin-top: -25px;margin-right: 0%;margin-left: 0%;transform: translate3d(10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 35px;height: 35px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="91.3,91.3 6.3,91.3 91.3,6.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="97" y1="0.7" x2="0.7" y2="97" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 0.5em;height: 1.8em;border-right: 0.9em solid rgb(222, 91, 15);border-bottom: 0.9em solid transparent !important;border-top: 0.9em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;height: 1.8em;line-height: 1.8em;padding-right: 5px;padding-left: 5px;background-color: rgb(222, 91, 15);color: rgb(255, 255, 255);border-radius: 0px 4px 4px 0px;box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">政策背景</strong></p></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">十八届三中全会强调：“加快生态文明制度建设……建立空间规划体系，划定生产、生活、生态空间开发管制界限。”随后，中央城镇化工作会议、中央城市工作会议等也提出了相应的要求。十九大报告提出：“统筹山水林田湖草系统治理……完成生态保护红线、永久基本农田、城镇开发边界三条控制线划定工作。”全国生态环境保护大会强调，要用最严格的制度、最严密的法治保护生态环境，加快制度创新，强化制度执行，让制度成为刚性的约束和不可触碰的高压线。按照上述会议精神和工作部署，自然资源部、住房城乡建设部、生态环境部开展了城市开发边界划定、生态保护红线划定等多项试点工作。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">为落实中央、部委有关指示精神，特别是贯彻落实习近平总书记两次视察北京工作的讲话，新一轮城市总体规划编制工作将城市开发边界和生态控制线划定作为重要的战略性、综合性、基础性工作内容。根据中共中央、国务院对《北京城市总体规划（2016年-2035年）》的正式批复，北京市要“严守人口总量上限、生态控制线、城市开发边界三条红线，划定并严守永久基本农田和生态保护红线”。深入落实城市总体规划，《北京城市总体规划实施工作方案（2017年-2020年）》中将“研究划定‘两线三区’和加强全域空间管控的政策机制”列为其中一项重要任务。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">可见，对于北京市来说，以加强两线三区管理为抓手，强化全域空间管制，加强生态文明建设，是全面落实城市总体规划的重要任务。而明确各类空间边界必须要以完善法治建设为根本基础，这也是切实提高规划权威性和严肃性的重要保障。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 0.5em;height: 1.8em;border-right: 0.9em solid rgb(222, 91, 15);border-bottom: 0.9em solid transparent !important;border-top: 0.9em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;height: 1.8em;line-height: 1.8em;padding-right: 5px;padding-left: 5px;background-color: rgb(222, 91, 15);color: rgb(255, 255, 255);border-radius: 0px 4px 4px 0px;box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">案例借鉴</strong></p></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">国内关于边界管控的立法实践由来已久，如城市规划中的绿线、蓝线和土地利用规划中的三界四区等，但是立足全域的多线立法实践尚无成型经验。特别是2014年基于城市增长管理理念开展城市开发边界划定工作的14个试点城市中，尚无一城市颁布了相应的管控办法。有一些城市在城市开发边界试点之前，曾划定过发挥生态底线作用的控制线体系并颁布了相应边界管理法规文件，如广东省和深圳市的基本生态控制线管理条例、武汉市基本生态控制线管理规定等，这些文件对于北京市完善制定《管理办法》有一定借鉴意义。然而，此类管理办法主要是针对某一条控制线范围内的各项土地利用和建设活动进行约束，相较而言，北京市制定的《管理办法》涉及两条政策线以及覆盖全市域的三个政策区，引导目标更为多元，管控体系更为复杂，因此在制定难度上也更具挑战（表1）。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: center;white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">表1 国内城市近期颁布的边界管理法规文件</span></strong></em></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img class="raw-image" data-ratio="0.4323899" src="http://mmbiz.qpic.cn/mmbiz_png/icKFe0wqE4eMItgrafXQdo6rTIToL34qbJoqdRjo6ia382QwunupcvJKyP95EPTvRP1ftiaZZ8ibA9ekDQeFLH7IGA/640?wx_fmt=png" data-type="png" data-w="636" style="vertical-align: middle;box-sizing: border-box;"  /></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin: 10px 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 10px;padding-left: 10px;box-sizing: border-box;"><section style="text-align: left;margin-right: 0%;margin-bottom: -25px;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 35px;height: 35px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(5px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding: 8px 15px;border-width: 0px;border-radius: 0px;border-style: solid;border-color: rgb(255, 255, 255);box-shadow: rgba(118, 178, 124, 0) 0px 0px 3px;background-position: 91.1352% 71.6959%;background-repeat: repeat;background-size: 142.169%;background-attachment: scroll;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/icKFe0wqE4eMItgrafXQdo6rTIToL34qb5fnsOYpKog2OtSEKmD52yeAZO80ZKglRN7BecwPcscIhCJF410iciciaw/640?wx_fmt=gif");box-sizing: border-box;"><section style="text-align: justify;font-size: 18px;color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="letter-spacing: 0px;box-sizing: border-box;">北京市两线三区划定方案</strong><br style="box-sizing: border-box;"  /></p></section></section></section><section style="text-align: right;margin-top: -25px;margin-right: 0%;margin-left: 0%;transform: translate3d(10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 35px;height: 35px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="91.3,91.3 6.3,91.3 91.3,6.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="97" y1="0.7" x2="0.7" y2="97" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">根据城市总体规划，2020年北京市生态控制区、集中建设区、限制建设区占市域面积的比例分别为73%、14%、13%。未来通过集体建设用地腾退减量和绿化建设，将限制建设区用地逐步划入生态控制区和集中建设区，2050年实现城市开发边界和生态控制线两线合一，永久性城市开发边界范围原则上不超过市域面积的20%，生态控制区比例提高到80%以上。</p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 0.5em;height: 1.8em;border-right: 0.9em solid rgb(222, 91, 15);border-bottom: 0.9em solid transparent !important;border-top: 0.9em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;height: 1.8em;line-height: 1.8em;padding-right: 5px;padding-left: 5px;background-color: rgb(222, 91, 15);color: rgb(255, 255, 255);border-radius: 0px 4px 4px 0px;box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="letter-spacing: 0px;box-sizing: border-box;">城市开发边界及集中建设区</strong><br style="box-sizing: border-box;"  /></p></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">城市开发边界是指一定规划期限内城市集中连片开发建设地区的边界，城市开发边界内的地区为集中建设区，是以城乡建设行为为主体的集中连片区域。规划划定的城市开发边界主要包括中心城区、城市副中心、新城、镇中心区以及部分城市功能组团的集中建设区。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 0.5em;height: 1.8em;border-right: 0.9em solid rgb(222, 91, 15);border-bottom: 0.9em solid transparent !important;border-top: 0.9em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;height: 1.8em;line-height: 1.8em;padding-right: 5px;padding-left: 5px;background-color: rgb(222, 91, 15);color: rgb(255, 255, 255);border-radius: 0px 4px 4px 0px;box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">生态控制线及生态控制区</strong></p></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">生态控制线以内的地区为生态控制区，是以生态保护红线、永久基本农田保护红线为基础，含具有重要生态价值的山地、森林、农田、河流、湖泊等现状生态用地和水源保护区、自然保护区、风景名胜区、重点生态公益林等法定保护空间，以及对生态安全格局有重要意义的部分大型公园和结构性绿地。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 0.5em;height: 1.8em;border-right: 0.9em solid rgb(222, 91, 15);border-bottom: 0.9em solid transparent !important;border-top: 0.9em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;height: 1.8em;line-height: 1.8em;padding-right: 5px;padding-left: 5px;background-color: rgb(222, 91, 15);color: rgb(255, 255, 255);border-radius: 0px 4px 4px 0px;box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">限制建设区</strong></p></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">限制建设区是指生态控制区和集中建设区以外的区域，包含部分平原地区村庄、分散性城镇建设用地、特交水用地、农用地等，是进行生态保护建设、控制开发强度、促进城乡建设用地集约减量的综合治理区域。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin: 10px 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 10px;padding-left: 10px;box-sizing: border-box;"><section style="text-align: left;margin-right: 0%;margin-bottom: -25px;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 35px;height: 35px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(5px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding: 8px 15px;border-width: 0px;border-radius: 0px;border-style: solid;border-color: rgb(255, 255, 255);box-shadow: rgba(118, 178, 124, 0) 0px 0px 3px;background-position: 91.1352% 71.6959%;background-repeat: repeat;background-size: 142.169%;background-attachment: scroll;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/icKFe0wqE4eMItgrafXQdo6rTIToL34qb5fnsOYpKog2OtSEKmD52yeAZO80ZKglRN7BecwPcscIhCJF410iciciaw/640?wx_fmt=gif");box-sizing: border-box;"><section style="text-align: justify;font-size: 18px;color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">管理办法制定目标、原则和主要思路</strong></p></section></section></section><section style="text-align: right;margin-top: -25px;margin-right: 0%;margin-left: 0%;transform: translate3d(10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 35px;height: 35px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="91.3,91.3 6.3,91.3 91.3,6.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="97" y1="0.7" x2="0.7" y2="97" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">《管理办法》于2019年4月由北京市政府正式印发实施，内容框架共包括六部分，25条2，主要明确了“两线”的法律地位、调整程序、维护机制、主体责任以及“三区”的组成要素、管控要求、引导重点、实施职责等核心内容，突出边界管控最为关键的差异性政策，实现全域空间管制。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 0.5em;height: 1.8em;border-right: 0.9em solid rgb(222, 91, 15);border-bottom: 0.9em solid transparent !important;border-top: 0.9em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;height: 1.8em;line-height: 1.8em;padding-right: 5px;padding-left: 5px;background-color: rgb(222, 91, 15);color: rgb(255, 255, 255);border-radius: 0px 4px 4px 0px;box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">制定目标</strong></p></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">《管理办法》制定的出发点是如何有效应对城市无序蔓延问题，核心是加强对建设空间和非建设空间的统筹管控。近年来北京市城乡建设用地规模持续增长（2018年实现首次负增长），在城镇建设用地面积增加的同时，集体建设用地面积也在大幅度增长，主要原因源于“圈外”管理的薄弱，也就是非建设用地和广大农村地区的管理相对缺失，导致“里面没建满，外面一大堆”，因此迫切需要全域空间管控的政策工具，加强“两线”的空间约束力，遏制城市“摊大饼式”蔓延发展。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 0.5em;height: 1.8em;border-right: 0.9em solid rgb(222, 91, 15);border-bottom: 0.9em solid transparent !important;border-top: 0.9em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;height: 1.8em;line-height: 1.8em;padding-right: 5px;padding-left: 5px;background-color: rgb(222, 91, 15);color: rgb(255, 255, 255);border-radius: 0px 4px 4px 0px;box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">制定原则</strong></p></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">一是强化分区差异化管制。生态控制区强化生态底线管理，加强生态保育和生态建设；集中建设区加强集约高效发展，优化功能结构；限制建设区实现“减地增绿”，推动集体建设用地腾退集中。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">二是强化生态全要素统筹。对生态本底实行最严格的保护，按照山水林田湖草是一个生命共同体的理念划定和严守市域各类生态要素，加强对全域自然生态空间的保护和修复，不断扩大生态空间、确保生态功能、提高生态服务保障能力。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">三是“清单管理”与“程序管理”并重。建立严格的边界管控程序，强化底线约束。对生态控制区实行正面清单准入制度，严格控制各类建设活动对生态空间的占用和扰动；对集中建设区内外建立差别化的准入及审批程序，引导建设行为集中布局。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">四是强化部门统筹，完善实施政策。明晰部门职责，加强部门之间分工协作，确保管理责任妥善落实。同步研究配套实施政策，完善利益协调和统筹机制，加强两线管理的综合保障机制。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 0.5em;height: 1.8em;border-right: 0.9em solid rgb(222, 91, 15);border-bottom: 0.9em solid transparent !important;border-top: 0.9em solid transparent !important;box-sizing: border-box;"></section><section style="display: inline-block;vertical-align: top;height: 1.8em;line-height: 1.8em;padding-right: 5px;padding-left: 5px;background-color: rgb(222, 91, 15);color: rgb(255, 255, 255);border-radius: 0px 4px 4px 0px;box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">制定思路</strong></p></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(145, 74, 6);box-sizing: border-box;">充分衔接既有保护地体系和控制线体系</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">长期以来由于部门分治、政出多门，各类边界体系繁杂，各自受相应的部门法管理，其中不乏对于城市发展和生态安全至关重要的法定保护空间，如饮用水源地、自然保护区等。近年来，在建立统一的空间规划体系目标下，自然资源部也明确了要以生态保护红线、永久基本农田、城镇开发边界“三线”为基础统一实施国土空间用途管制。因此，《管理办法》必然要面对与既有法定保护地和国土空间规划控制线体系的衔接问题。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">针对既有的保护地体系，《管理办法》采取的衔接原则是“一般法援引专门法”。由于生态控制区以山、水、林、田生态要素为基底，涵盖了市域大部分生态空间，不可避免地与自然保护区、饮用水源地、森林公园、风景名胜区等范围存在交叠。因此，《管理办法》针对不同生态要素和生态空间，分级分类制定建设活动管控要求，对于有法可依的保护地专门强调严格管控影响生态功能的各类开发活动，并申明“法律、法规和规章另有规定的，从其规定”。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">针对国土空间规划控制线体系，由于自然资源部提出的“三区三线”管控体系中的城镇开发边界，与北京市城市开发边界概念基本类似，但具体范围和要求不完全一致，可通过补划有条件建设区及远景“两线合一”实现衔接。目前北京市94%的规划城镇建设用地位于城市开发边界以内的集中建设区，与“三区三线”所定义的城镇开发边界内涵基本相同，差异在于北京市的平原区存在限制建设区。然而，限制建设区在远景规划中将分别纳入集中建设区和生态控制区，实现“两线合一”。同时，目前的分区规划已将紧邻开发边界、可用于规划布局调整的一些地区划为有条件建设区。可以预见，随着限制建设区用地方案的深化，“两线三区”最终将形成与“三区三线”衔接一致的永久性开发边界。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(145, 74, 6);box-sizing: border-box;">对新增建设行为突出正面清单管理</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">当前多数管制性规章常采用禁令式条文，在实施中遵循“法无禁止即可为”原则，而《管理办法》中，由于生态控制区是以现状生态要素图斑为基础划定，除山区涵盖了较多村庄之外，区内现状建设有限，宜采取“严划严管”的正面清单管理思路，在实施中遵循“法无授权不可为”。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">首先，正面清单管理的前提是明确约束对象，《管理办法》对于生态控制区内的现状村庄和现状建设另有规定，仅对新增开发建设活动采取正面清单约束。其次，正面清单管理的核心是列全准入项目，对此《管理办法》列出五类准入活动：“第一，对区域具有系统性影响的道路交通基础设施、市政基础设施、水利工程配套设施；第二，不影响生态环境和功能前提下，村庄原住民正常的生产生活设施建设、修缮和改造；第三，符合区域功能定位的旅游服务设施；第四，必要的公园配套设施、生态环境修复工程；第五，其他必要的特殊设施和公益性设施，如森林防火、应急救援、科研科普、军事与安全保密设施等”，除经依法批准的以上五类建设行为外，严格禁止新的开发建设活动。另外，《管理办法》还明确了以上项目建设的有关要求，提出在选址、设计、建设、运营中应优先考虑生态保护，加强前期论证研究和设计方案审查，严格控制建筑规模与开发强度，以及完善各项生态环境保护配套工程。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(145, 74, 6);box-sizing: border-box;">保护和利用好城市开发边界内非建设空间</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">考虑到城市开发边界的相对完整性，集中建设区内包含了部分非建设用地，多为与城镇空间联系密切的河湖水系、游憩空间、防护隔离空间等。此类空间不仅支撑了平原区生态网络的连贯性，也为市民提供了近水近绿、设施齐备、养护有序的休闲活动空间，为打造与城市功能相融合的高品质生态空间预留空间资源。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">为合理引导此类留白，首先必须明确城市开发边界范围与城乡建设用地指标无严格对应关系，在城市开发边界内保留非建设空间不占用规划建设用地指标。另外，对于资源类非建设空间采取保护性规定，如“绿地、水域等按照《北京市绿化条例》《北京市河湖保护管理条例》等相关法规、规章进行管理”，对于风险类非建设空间实行避让性规定，如“生态敏感区、灾害隐患点或其他禁止建设的区域，应按照相关行业主管部门确定的保护范围或避让距离，严格管控建设活动”。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(145, 74, 6);box-sizing: border-box;">强化边界的刚性，突出规划实施的过程性</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">《管理办法》明确了“两线”刚性管控的法律效力，提出“《总体规划》确定的生态控制线和城市开发边界，应作为各类规划编制及城乡规划建设管理的基础和前提，并纳入城市体检评估进行考核”，同时，“生态控制线和城市开发边界一经划定，在规划周期内原则上不得进行调整”，因“国家级重大项目建设、上位规划调整、重大自然灾害等原因”确需局部微调的，应按照生态优先、占补平衡、布局优化的原则，严格按照有关程序进行。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">而另一方面，从“两线三区”到远景“一线两区”本身的设计就突出强调了实施的过程性，《管理办法》一方面强调了限制建设区的减量重点（“优先推动位于规划绿地和生态廊道上现状低效建设用地、集体产业用地腾退，鼓励向集中建设区内布局”），一方面强化了限制建设区的增绿重点（“重点提高生态斑块和生态廊道的连续性、完整性”“在第一道和第二道绿化隔离地区内鼓励城市公园、郊野公园、湿地公园等建设”），在引导平原区建设强度降低和生态格局优化的同时，赋予城市开发边界一定的弹性演化空间，将蓝图式底线划定的远景目标分解到从“两线三区”到“一线两区”的发展过程中。与此相配套，《管理办法》也提出了动态维护的具体规定，根据建设实施的情况，可以结合城市体检评估定期组织对两线进行动态维护，一是结合五年期评估，对于按照规划实施的城市集中连片建设地区，增补到集中建设区；二是结合年度城市体检和五年期评估，及时对生态资源进行更新，并动态增补到生态控制区。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(145, 74, 6);box-sizing: border-box;">引导不同区位的乡村差异化发展</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">《管理办法》对三个政策区均提出了现状村庄管理原则，其中：集中建设区内的村庄位于紧邻城镇组团的边缘，应“有序推进城市化”；限制建设区内的村庄位于平原区城乡结合部，应分为远期城市化、改造、保留提升三类引导路径，“严格按照依法审批的乡镇域规划和村庄规划实施建设，有序推动农村城市化、城乡结合部改造、美丽乡村建设”；生态控制区内的村庄位于山区生态涵养区，应“以生态保护优先为前提，制定村庄建设分类引导方案”，影响生态保护或存在安全隐患的应引导搬迁，保留村庄应编制村庄规划并制定生态保护策略，避免对生态环境造成不利影响。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(145, 74, 6);box-sizing: border-box;">完善边界管控相关保障机制</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">《管理办法》提出了五项综合保障机制，包括生态资源全要素统筹管理机制、生态补偿和利益共享机制、两线动态监测机制、实施评估和公众监督机制、督查考核及责任追究机制。与过去面向单个政府部门的技术方案或政策输出不同，《管理办法》既体现出政策属性、也体现出改革属性，是总规实施过程中深化改革的探索之一。为确保《管理办法》提出的建设准入清单、审查程序细则和环境保护标准等关键性内容的有效实施，相应配套机制必不可少，这些机制确保了守土之责不在单一部门和单一主体，而是建立在能够动员全局形成同向行动的制度基础之上。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin: 10px 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 10px;padding-left: 10px;box-sizing: border-box;"><section style="text-align: left;margin-right: 0%;margin-bottom: -25px;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 35px;height: 35px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(5px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding: 8px 15px;border-width: 0px;border-radius: 0px;border-style: solid;border-color: rgb(255, 255, 255);box-shadow: rgba(118, 178, 124, 0) 0px 0px 3px;background-position: 91.1352% 71.6959%;background-repeat: repeat;background-size: 142.169%;background-attachment: scroll;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/icKFe0wqE4eMItgrafXQdo6rTIToL34qb5fnsOYpKog2OtSEKmD52yeAZO80ZKglRN7BecwPcscIhCJF410iciciaw/640?wx_fmt=gif");box-sizing: border-box;"><section style="text-align: justify;font-size: 18px;color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">结语</strong></p></section></section></section><section style="text-align: right;margin-top: -25px;margin-right: 0%;margin-left: 0%;transform: translate3d(10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 35px;height: 35px;vertical-align: top;overflow: hidden;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="91.3,91.3 6.3,91.3 91.3,6.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="97" y1="0.7" x2="0.7" y2="97" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 97.7 97.7" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><polygon points="6.3,6.3 91.3,6.3 6.3,91.3" fill="#FFFFFF" style="box-sizing: border-box;"></polygon><line x1="0.7" y1="97" x2="97" y2="0.7" fill="none" stroke="#000000" stroke-width="4" stroke-miterlimit="10" style="box-sizing: border-box;"></line></g></svg></section></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">在两线三区划定之时，北京市规划和自然资源委员会就研究制定了《北京市“两线三区”划定技术规程》并下发各区；其后，城市总体规划确定的“两线三区”空间方案界定了未来北京城市扩张的空间底线；如今，面向社会发布的管理办法编制出台，至此，边界(空间底线)、标准(技术规程)、政策(管理规定)“三合一”的管控体系形成，将推动“两线三区”真正落地实施，成为“划得准、管得住”的管理抓手。此外，《北京市城乡规划条例（2019年修订版）》也将落实执行“两线三区”作为一项重要内容予以明确，从而将两线的管理上升为法规，进一步维护了两线的严肃性。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">“三分划七分管”，从空间方案到建章立制是北京市“两线三区”从方案走向公共政策的必然历程。《管理办法》的编制过程融合了各级各部门的管理意图，从规划到规则，从规则到共识，从共识到共同行动。而《管理办法》颁布之后，后续管控机制和配套政策仍需深化跟进，特别是要在相对完备的顶层设计基础上，将两线划定方案及时“交付”给公众监督，以更大限度地发挥社会和市场力量，自下而上地促进规划实施。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="text-align: left;white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">注：该成果为北京建筑大学未来城市设计高精尖创新中心资助项目—创新驱动下的未来城乡空间形态及其城乡规划理论和方法研究（udc2018010921）”</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" 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style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">1 “两线三区”即城市开发边界和生态控制线“两线”，二者将市域划分为集中建设区、限制建设区、生态控制区“三区”。</p><p style="white-space: normal;box-sizing: border-box;">2 京政发〔2019〕7号北京市人民政府关于印发《北京市生态控制线和城市开发边界管理办法》的通知。</p><p style="text-align: left;white-space: normal;box-sizing: border-box;">http://www.beijing.gov.cn/zhengce/wenjian/192/33/50/438650/1574479/index.html</p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 303.3 4.6" 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border-box;"><path d="M140.1,2.3c0,0.6-0.5,1.1-1.1,1.1c-0.6,0-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1    C139.7,1.2,140.1,1.7,140.1,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M135.7,2.3c0,0.6-0.5,1.1-1.1,1.1s-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1S135.7,1.7,135.7,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M131.3,2.3c0,0.6-0.5,1.1-1.1,1.1c-0.6,0-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1    C130.8,1.2,131.3,1.7,131.3,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g></g></svg></section></section><section style="font-size: 14px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><span style="color: rgb(222, 91, 15);box-sizing: border-box;">参考文献</span></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">1 高吉喜. 论生态保护红线划定与保护[C]// 2014中国环境科学学会学术年会(第三章). 2014.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">2 何京. 从“集中建设区”走向“城市开发边界”--试论上海的土地规划空间管制[J]. 上海城市规划, 2015(5):81-86.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">3 胡飞, 何灵聪, 杨昔. 规土合一、三线统筹、划管结合-武汉城市开发边界划定实践[J]. 规划师, 2016, 32(6):31-37.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">4 琚立宁. 历史地看待“城市开发边界”的定位与内涵——上海的相关历史实践评述[J]. 上海城市规划, 2018(S1):35-39.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">5 林坚, 乔治洋, 叶子君. 城市开发边界的“划”与“用”——我国14个大城市开发边界划定试点进展分析与思考[J]. 城市规划学刊, 2017(2).</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">6 林坚, 吴宇翔, 吴佳雨, et al. 论空间规划体系的构建——兼析空间规划、国土空间用途管制与自然资源监管的关系[J]. 城市规划, 2018(5):9-17.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">7 骆保林. 武汉市基本生态控制线管控制度的探索与思考[J]. 城市发展研究, 2018, 25(11):43-49.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">8 盛鸣. 从规划编制到政策设计:深圳市基本生态控制线的实证研究与思考[J]. 城市规划学刊, 2010(s1):56-61.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">9 王国恩, 易晓峰. 从方案到政策:“生态优先”的广州空间规划[J]. 城市规划, 2010(3):32-37.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">10 杨秋惠. 空间发展、管制与变革--国内外“城市开发边界”发展评述及启示[J]. 上海城市规划, 2015(3):46-54.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">11 张兵, 林永新, 刘宛,等. “城市开发边界”政策与国家的空间治理[J]. 城市规划学刊, 2014(3).</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">12 周岱霖. 特大城市生态控制线管控制度的探索与思考[J]. 城市观察, 2015(3):164-169.</em></p><p style="white-space: normal;box-sizing: border-box;"><em style="box-sizing: border-box;">13 周之灿. 我国“基本生态控制线”规划编制研究[C]// 中国城市规划年会. 2011.</em></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;width: 100%;box-sizing: border-box;"><svg class="svg" xmlns="http://www.w3.org/2000/svg" x="0px" y="0px" viewbox="0 0 303.3 4.6" style="vertical-align: middle;max-width: 100%;width: 100%;box-sizing: border-box;" width="100%"><g style="box-sizing: border-box;"><g style="box-sizing: border-box;"><g style="box-sizing: border-box;"><g style="box-sizing: border-box;"><path 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C157.3,1.2,157.8,1.7,157.8,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M153.4,2.3c0,0.6-0.5,1.1-1.1,1.1c-0.6,0-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1    C152.9,1.2,153.4,1.7,153.4,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M149,2.3c0,0.6-0.5,1.1-1.1,1.1s-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1S149,1.7,149,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M144.5,2.3c0,0.6-0.5,1.1-1.1,1.1c-0.6,0-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1    C144.1,1.2,144.5,1.7,144.5,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M140.1,2.3c0,0.6-0.5,1.1-1.1,1.1c-0.6,0-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1    C139.7,1.2,140.1,1.7,140.1,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M135.7,2.3c0,0.6-0.5,1.1-1.1,1.1s-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1S135.7,1.7,135.7,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g><g style="box-sizing: border-box;"><path d="M131.3,2.3c0,0.6-0.5,1.1-1.1,1.1c-0.6,0-1.1-0.5-1.1-1.1c0-0.6,0.5-1.1,1.1-1.1    C130.8,1.2,131.3,1.7,131.3,2.3z" fill="rgb(204,146,94)" style="box-sizing: border-box;"></path></g></g></svg></section></section><section style="font-size: 14px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">作者单位：</p><p style="white-space: normal;box-sizing: border-box;">徐勤政、甘霖、何永，北京市城市规划设计研究院；</p><p style="white-space: normal;box-sizing: border-box;">彭珂、李雅，北京市规划和自然资源委员会</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;">原文发表于《北京规划建设》杂志2019年第4期。</p><p style="white-space: normal;box-sizing: border-box;">获授权微信首发，如需转载请联系本号。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section><p><br  /></p>
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