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<p><img class="raw-image" data-backh="431" data-backw="574" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_png/KoH4xpDrnibBf1G45pzcfTjsriaHleBib3OuicaIJfp1HLsibHfNVl321KAiaKoGWnkaNBd3XnMtY5bus0KUdbcjBkWw/0?wx_fmt=png" data-ratio="0.75" src="http://mmbiz.qpic.cn/mmbiz_png/KoH4xpDrnibBf1G45pzcfTjsriaHleBib3OuicaIJfp1HLsibHfNVl321KAiaKoGWnkaNBd3XnMtY5bus0KUdbcjBkWw/640?wx_fmt=png" data-type="png" data-w="1024" style="text-align: center;font-family: Optima-Regular, PingFangTC-light;font-size: 15px;letter-spacing: 1.5px;vertical-align: middle;box-sizing: border-box;width: 100%;height: auto;"  /></p><section style="line-height: 2;letter-spacing: 1.5px;padding-right: 8px;padding-left: 8px;font-size: 15px;font-family: Optima-Regular, PingFangTC-light;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">构建“五级三类”国土空间规划体系</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">是保障空间治理机制有效运行的必然要求，划定省级城镇开发边界是实施国土空间用途管制的重要手段。</span></strong>对于如何通过划定省级城镇开发边界来落实空间管控和传导要求，目前尚未有明确的方法和标准。</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;">文章立足省级国土空间规划的定位与作用，结合国内外城市、地区案例及广东省先行先试的工作实践，探索省级城镇开发边界的工作模式、划定方法和管控机制，以期为相关实践提供借鉴。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="text-align: left;margin-right: 0%;margin-bottom: 30px;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 5px;padding-left: 50px;box-sizing: border-box;"><section style="margin: 10px 0% -55px;transform: translate3d(-50px, 0px, 0px);-webkit-transform: translate3d(-50px, 0px, 0px);-moz-transform: translate3d(-50px, 0px, 0px);-o-transform: translate3d(-50px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 70px;height: 80px;vertical-align: top;overflow: hidden;background-position: 50% 50%;background-repeat: no-repeat;background-size: contain;background-attachment: scroll;padding-left: 11px;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/KoH4xpDrnibBf1G45pzcfTjsriaHleBib3OM8YMYmDAatJhOmS16znwf8lnH0rfDPxxpGGwrRNOfcrdrWkP1RwTbQ/640?wx_fmt=gif");box-sizing: border-box;"><section style="margin-top: 25px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: justify;color: rgb(255, 255, 255);font-size: 17px;box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">01<br style="box-sizing: border-box;"  /></strong></p></section></section></section></section><section style="transform: translate3d(-5px, 0px, 0px);margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-top: 3px;padding-bottom: 3px;border-width: 1px 1px 0px;border-radius: 0px;border-style: none none dashed;border-color: rgb(62, 62, 62);box-sizing: border-box;"><section style="text-align: justify;font-size: 16px;color: rgb(55, 80, 114);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">城镇开发边界相关研究及定义</strong></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><br  /></strong></p></section></section></section></section></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）</strong><strong style="box-sizing: border-box;"><span style="color: rgb(9, 9, 9);box-sizing: border-box;">国外城市开发边界的研究</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“城市开发边界”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">的概念源于“</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">城市空间增长边界”。</span></strong>20世纪70年代，为遏制城市的无序蔓延，在新城市主义思潮下美国的<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“城市空间增长边界”</span></strong><strong style="box-sizing: border-box;">概念应运而生，旨在通过人为划定城市边缘界线以控制城市的无序蔓延，在边界内土地可以开发为城市用地，边界外则不可以。</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;">波特兰是成功划定城市空间增长边界的典型，<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">其增长边界主要在空间拓展导向下划定，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">首先</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">预测居住人口和就业人口规模，</span></strong>将人口规模转化为用地需求；<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">其次</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">进行土地适宜性评价和城市拓展方向分析，</span></strong>将边界落实到空间中，<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">最终</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">预留充足的弹性空间。</span></strong>波特兰通过对城市建设用地增长的预测，以城市空间增长边界圈定了未来20年的城市空间，限制外围土地开发，控制过度蔓延，有效保护了农业和生态空间。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）</strong><strong style="box-sizing: border-box;"><span style="color: rgb(9, 9, 9);box-sizing: border-box;">城镇开发边界的定义研究</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">城镇开发边界和城市开发边界的概念类似，<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">从</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“城市”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">到</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“城镇”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">，</span></strong>说明单从县市层面划定城市开发边界难以解决更广泛区域的空间发展与保护难题，需要确定城镇开发边界以规范和引导城镇型开发建设活动。结合学术界相关研究成果，本文认为<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">城镇开发边界</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">是指一定期限内城镇建设用地布局调控的界限，包括规划期末的城镇建设用地和城镇建设预留的空间，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">是为规范和引导城镇开发建设活动而划定的地域，是对城镇建设区可能形态的空间预留，是城镇基础设施保障的主要地区。</span></strong>城镇开发边界能引导城镇空间开发和城镇建设用地集中布局，促进集约发展，优化城镇形态，塑造高品质空间，为城镇发展预留弹性。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）</strong><strong style="box-sizing: border-box;"><span style="color: rgb(9, 9, 9);box-sizing: border-box;">国内城市(镇)开发边界的试点探索</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">我国对城市(镇)开发边界的探索起步于近十年，除学术界对城市(镇)开发边界划定的理论与技术方法进行研究外，住房和城乡建设部、国土资源部于2014年联合部署启动了北京、上海等14个城市的城市(镇)开发边界划定试点工作，为构建统一的空间规划体系做出了有益探索，我国城市(镇)开发边界的划定从理论探索步入实战演练阶段。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(1)划定方法：</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">反向法与正向法。</span></strong>关于城市(镇)开发边界划定的技术方法，不同城市有不同做法，主要分为反向法和正向法。反向法的基本思路是<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">“先底后图”</span></strong>，考虑到对自然限制要素的充分保护，在框定非限制性要素后倒逼城市(镇)开发边界的划定范围；正向法则以城市为着眼点，模拟城市扩展的驱动机制并充分考虑自然限制因素以确定城市(镇)开发边界，14个试点城市多采用反向法倒逼城市(镇)开发边界的划定。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(2)划定类型：</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">刚性管控与弹性预留。</span></strong>试点城市就城市(镇)开发边界划定的管控强度探索主要分为两类：<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">一类是刚性管控</span></strong>，即划定永久开发边界，如深圳、厦门划定了城镇建设区扩展的极限范围；<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">另一类是弹性预留，</span></strong>即认为城镇发展建设具有一定的不确定性，需要兼顾城镇布局和功能优化的弹性需要，分不同期限进行划定，如北京、武汉、成都分别划定了2020年和2030年的开发边界。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（四）</strong><strong style="box-sizing: border-box;"><span style="color: rgb(9, 9, 9);box-sizing: border-box;">现有城镇开发边界研究的优点及局限性</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">国内外就城市开发边界划定的理论和实践探索多聚焦于单个城市开发边界的</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“划”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">与</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“用”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">，其内涵</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">认知、模式设计和划定方法</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">的差异性与统一性并存，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">为推动城市良性循环发展发挥了重要作用。</span></strong>然而，现有城镇开发边界划定工作主要以城市为主体开展，缺乏省级层面的宏观战略思考及区域尺度的统筹协调研究，缺少对省、市、县等多级政府对应管控事权的研究，难以为各级国土空间规划的编制提供有力支撑。在确定国土空间规划“<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">五级三类”</span></strong>规划体系的背景下，探索省级城镇开发边界的划定，是优化全域国土空间用途管制的有益创新。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: left;margin-right: 0%;margin-bottom: 30px;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 5px;padding-left: 50px;box-sizing: border-box;"><section style="margin: 10px 0% -55px;transform: translate3d(-50px, 0px, 0px);-webkit-transform: translate3d(-50px, 0px, 0px);-moz-transform: translate3d(-50px, 0px, 0px);-o-transform: translate3d(-50px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 70px;height: 80px;vertical-align: top;overflow: hidden;background-position: 50% 50%;background-repeat: no-repeat;background-size: contain;background-attachment: scroll;padding-left: 11px;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/KoH4xpDrnibBf1G45pzcfTjsriaHleBib3OM8YMYmDAatJhOmS16znwf8lnH0rfDPxxpGGwrRNOfcrdrWkP1RwTbQ/640?wx_fmt=gif");box-sizing: border-box;"><section style="margin-top: 25px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: justify;color: rgb(255, 255, 255);font-size: 17px;box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">02</strong></p></section></section></section></section><section style="transform: translate3d(-5px, 0px, 0px);margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-top: 3px;padding-bottom: 3px;border-width: 1px 1px 0px;border-radius: 0px;border-style: none none dashed;border-color: rgb(62, 62, 62);box-sizing: border-box;"><section style="text-align: justify;font-size: 16px;color: rgb(55, 80, 114);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">广东省城镇开发边界划定思路与方法</strong></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><br  /></strong></p></section></section></section></section></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（一）<span style="color: rgb(9, 9, 9);box-sizing: border-box;">工作组织方式</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">省级国土空间规划</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">要发挥战略性与协调性作用，城镇开发边界作为国土空间规划的核心控制线要素，</span></strong>是落实国家和省重大战略格局、促进区域协调发展、合理规划城镇空间格局、防止城镇规模盲目扩张和建设用地无序蔓延、推动城镇发展由外延式扩张向内涵式提升转变的重要抓手，需要充分发挥省级层面的统筹部署和管控指引作用。</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;">同时，为确保划定方案充分切合地方实际发展需求，需要各地市紧密配合，联动参与。为此，本文提出“自上而下”和“自下而上”相结合的工作组织方式，实现工作要求、进度安排的统一部署和有效传导。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(1)省级层面统筹部署。</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">省级层面的统筹部署应做到<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“四个统一”</span></strong>，即<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">明确</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">统一的划定工作方案、统一的划定技术规程、统一的基础数据底图和统一的成果要求，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">明确</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">工作时间、工作深度和工作标准，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">为各地市城镇开发边界的划定提供全面深入的指引，便于全省同步开 展城镇开发边界的划定工作。</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;">通过统一的工作方案，明确全省划定工作的指导思想和总体要求，各项具体工作安排的时间进度，确保各地开展工作的同步性。通过统一的技术规程，明确划定流程及各类划定要素的分类，包括必须纳入的用地、禁止纳入的用地、可以不纳入的用地和可以纳入的用地，确保各地在核准完善过程中具有统一的标准依据。<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">通过</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">统一的基础数据底图和成果要求，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">确保各地成果得以有效拼合与衔接。</span></strong></p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(2)省市联动开展划定工作。</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">省级城镇开发边界划定应按照“省—市—县(市、区)—镇”四级联动工作机制开展。省层面提出城镇开发边界初步空间格局与各地级以上市城镇开发边界规模，明确具体的划定要点和工作要求。</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;">地级以上市层面统筹组织各县(市、区)开展划定工作；各县(市、区)组织各镇街举证，提出调整意见；各镇街完成举证并将材料提交上级政府汇总，再通过逐级汇总上报，形成全省城镇开发边界划定方案的整合成果。通过各级政府对城镇开发边界划定方案的校核研究，确保划定方案的科学性、合理性及可实施性。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（二）</strong><strong style="box-sizing: border-box;"><span style="color: rgb(9, 9, 9);box-sizing: border-box;">划定技术路线</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">基于对省级城镇开发边界划定工作重点的理解，以及对广东省划定基础条件的研究，本文提出<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">定容量、定总量、定格局、定边界、定机制</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">的</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“五定”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">划定技术路线，</span></strong>以实现城镇开发边界规模比例、空间格局与分布的有效传导<span style="font-size: 14px;color: rgb(178, 178, 178);">(图1)。</span></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;"><img class="" data-ratio="0.7211635" data-w="997" data-type="png" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoia5JYIxz4cz9DMX30cxhp38TZHQHucaH3xnVO0S9Y0EXlayqx0tyKtxg/640?wx_fmt=png" style="box-sizing: border-box;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;font-size: 16px;letter-spacing: 0.544px;text-align: center;white-space: normal;background-color: rgb(255, 255, 255);vertical-align: middle;word-wrap: break-word !important;width: 100%;visibility: visible !important;height: auto;" data-backw="558" data-backh="402" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoia5JYIxz4cz9DMX30cxhp38TZHQHucaH3xnVO0S9Y0EXlayqx0tyKtxg/640?wx_fmt=png"  /></p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(1)定容量</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">城镇开发边界</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">应在国土空间可以承载城镇建设的容量之内进行划定。</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">首先</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">通过开展</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">资源环境承载力评价，</span></strong>结合土地资源、水资源、环境状况、城市化和农业、生态等多因素进行资源承载力分析，确定全省的资源承载力上限；<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">其次</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">通过开展</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">国土空间开发适宜性评价，</span></strong>对自然地理、生命安全、生态安全和粮食安全4大类要素及13个因子进行限制性分析，评估全省国土空间的适宜性等级分布；<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">最后</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">基于</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">“双评价”</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">研究结果，</span></strong>综合评估广东省用地开发建设规模上限及空间拓展方向，为确定城镇建设用地规模总量提供支撑<span style="font-size: 14px;color: rgb(178, 178, 178);">(图2，图3)。</span></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><section powered-by="gulangu" style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;font-size: 16px;letter-spacing: 0.544px;white-space: normal;background-color: rgb(255, 255, 255);text-align: center;word-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;vertical-align: middle;display: inline-block;line-height: 0;word-wrap: break-word !important;"><img class="" data-ratio="0.7034121" data-w="762" data-type="png" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoiaqosL8DZERD2QNficPibjvcdcmHGlMcI3kbrGfdIxrs5NTWy8xVxQibMiag/640?wx_fmt=png" style="box-sizing: border-box;vertical-align: middle;word-wrap: break-word !important;width: 100%;visibility: visible !important;height: auto;" data-backw="558" data-backh="393" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoiaqosL8DZERD2QNficPibjvcdcmHGlMcI3kbrGfdIxrs5NTWy8xVxQibMiag/640?wx_fmt=png"  /></section></section><section powered-by="gulangu" style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;font-size: 16px;letter-spacing: 0.544px;white-space: normal;background-color: rgb(255, 255, 255);text-align: center;word-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;vertical-align: middle;display: inline-block;line-height: 0;word-wrap: break-word !important;"><img class="" data-ratio="0.7637907" data-w="707" data-type="png" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoiatWicNhoibWAlroL75knco8gsxRSWwyE4ia9uHCD8bleicPNibc3HHLMicwew/640?wx_fmt=png" style="box-sizing: border-box;vertical-align: middle;word-wrap: break-word !important;width: 100%;visibility: visible !important;height: auto;" data-backw="558" data-backh="426" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoiatWicNhoibWAlroL75knco8gsxRSWwyE4ia9uHCD8bleicPNibc3HHLMicwew/640?wx_fmt=png"  /></section></section><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(2)定总量</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">城镇开发边界面积总量</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">应基于国土空间规划确定的城镇建设用地规模，结合一定的弹性扩展比例进行确定。</span></strong>广东省国土空间规划已提出2035年广东省城镇工矿用地总量，作为全省城镇空间开发建设的刚性约束。因城镇发展建设具有一定的不确定性，为了兼顾城镇布局和功能优化的弹性需要，优化城镇布局和形态，推动城镇高质量发展，城镇开发边界应在刚性约束的基础上确定弹性调整空间。</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;">基于对最早划定城市(镇)开发边界的美国城市波特兰及国内已经划定城市(镇)开发边界的江西、福建、宁夏、四川等省份和厦门、南昌等城市的分析，城镇开发边界与城镇建设用地(土规城镇工矿用地)的比值一般在<strong style="box-sizing: border-box;"><span style="box-sizing: border-box;"> 1.2 ～ 1.5</span></strong>。充分考虑广东省的实际发展需求，建议扩展比例也控制在这一区间。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(3)定格局</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">在明确城镇开发边界面积总量的基础上，应依据广东省国土空间发展格局及各地实际发展需求确定城镇开发边界的空间格局与分布，明确各地级以上市的城镇开发边界规模比例。<br style="box-sizing: border-box;"  /></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(55, 80, 114);box-sizing: border-box;">本文基于以下要素进行格局划分：</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;">①粤港澳大湾区建设等国家和区域空间战略；</p><p style="white-space: normal;box-sizing: border-box;">②广东省委提出的“一核一带一区”区域发展格局；</p><p style="white-space: normal;box-sizing: border-box;">③全省主体功能区划；</p><p style="white-space: normal;box-sizing: border-box;">④省域自然资源本底及国土空间开发现状；</p><p style="white-space: normal;box-sizing: border-box;">⑤各地级以上市空间发展战略格局和诉求。</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;">通过对上述要素的叠合分析，初步预测各地级以上市的城镇建设用地规模，并结合<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“一核一带一区”</span></strong>的发展导向差异及各类主体功能区政策导向差异，分类分区确定各地市的城镇开发边界扩展比例，进而明确各地市城镇开发边界的具体面积。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(4)定边界</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">在明确各地级以上市城镇开发边界面积的基础上，需要结合国土空间开发实际空间布局及用地增长趋势和方向，划定并核准城镇开发边界的具体布局形态。</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;">本文在划定城镇开发边界的过程中，主要步骤如下：</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;">①充分避让各类底线要素，包括永久基本农田、生态保护红线、林业生态保护线及地质灾害区等，确保城镇开发建设与底线要素管控无冲突。</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;">②充分衔接国土空间开发现状，将符合城镇发展战略的现状城镇建设用地纳入城镇开发边界，确保划定方案实事求是。</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;">③衔接现有法定城市总体规划、土地利用总体规划建设用地规模和范围，将同时符合“两规”的规划城镇建设用地纳入城镇开发边界。</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;">④基于神经网络的用地概率计算及元胞自动机的用地演变模拟，预测未来城镇增长空间，适度纳入城镇开发边界范围，最终形成全省城镇开发边界的具体布局形态(图4)。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;"><img class="" data-ratio="1" data-w="659" data-type="png" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoia0qVicp8hV4M4usc6BqUIrqaeufmQfSP3ic22RRjv9TLSfo9Fj3IWstcQ/640?wx_fmt=png" style="box-sizing: border-box;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;font-size: 16px;letter-spacing: 0.544px;text-align: center;white-space: normal;background-color: rgb(255, 255, 255);vertical-align: middle;word-wrap: break-word !important;width: 100%;visibility: visible !important;height: auto;" data-backw="558" data-backh="558" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoia0qVicp8hV4M4usc6BqUIrqaeufmQfSP3ic22RRjv9TLSfo9Fj3IWstcQ/640?wx_fmt=png"  /></p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(5)定机制</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">划定城镇开发边界的最终目</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">的</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">是要通过城镇开发边界的实施管理，确保城镇空间的集约高效利用。</span></strong>为此，需从管控要求、保障机制、实施评估和动态调校等方面着手，建立完善的城镇开发边界管控机制。</p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 10px 0% 20px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;vertical-align: top;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 7px;margin-left: 0%;text-align: left;line-height: 10px;transform: translate3d(7px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;border-top: 10px solid rgb(255, 202, 0);display: inline-block;vertical-align: top;border-left: 6px solid transparent !important;border-right: 6px solid transparent !important;box-sizing: border-box;"></section></section><section style="text-align: left;font-size: 16px;color: rgb(2, 52, 119);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">（三）<span style="color: rgb(9, 9, 9);box-sizing: border-box;">管控调整机制</span></strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">城镇开发边界面向城镇空间的规划建设管理，是实现对城镇空间统一管控的政策工具。</span></strong>本文从省级城镇开发边界的管控引导方式、具体管控措施及动态调整机制等方面着手，研究提出相应的管控机制建议，明晰各级政府的管控权责，实现管控机制的层级传导。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(1)“双线”管控引导</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">城镇开发边界是引导城镇建设用地集中布局、优化城镇空间形态的政策边界，既要体现出对城镇长远空间格局的整体性指引，又要落实对城镇空间开发利用的精准管控。</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;">本文提出<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">城镇开发边界应由两条线构成，即</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">空间格局边界(包络线)</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">与</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">空间管控边界(实控线)</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">两条线，通过双线导控优化城镇布局形态。</span></strong>其中，<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">空间格局边界</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">是引导城镇形态布局优化调整的包络线，具有一定的管理弹性，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">主要作用</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">是为城市发展战略和空间格局安排提供引导；</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">空间管控边界</span></strong><strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">是落实城镇开发建设精准管控的实际图斑界线，与城镇开发边界实际面积一致，是面向规划建设管理的刚性红线，</span></strong>要求精确空间坐标，严格落实管控要求<span style="font-size: 14px;color: rgb(178, 178, 178);">(图5)。</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;"><img class="" data-ratio="0.8287841" data-w="806" data-type="png" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoiaP5Eq4z8qJ0LZr7nTkSEqOqAexRBB6icdTx9QOAFeLkGCeJFHibu4H9kw/640?wx_fmt=png" style="box-sizing: border-box;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;font-size: 16px;letter-spacing: 0.544px;text-align: center;white-space: normal;background-color: rgb(255, 255, 255);vertical-align: middle;word-wrap: break-word !important;width: 100%;visibility: visible !important;height: auto;" data-backw="558" data-backh="462" data-before-oversubscription-url="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miaS74Gpx3iaKLX5tic0kmXgoiaP5Eq4z8qJ0LZr7nTkSEqOqAexRBB6icdTx9QOAFeLkGCeJFHibu4H9kw/640?wx_fmt=png"  /></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(2)具体管控措施</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">城镇开发边界的管控机制</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">既要明确</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“边界内”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">的具体管控要求，又要明确</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“边界外”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">禁止实施的城镇相关建设事项，从两大区间落实对城镇空间集约高效发展的约束。</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;">城镇开发边界内的建设用地管理建议按照原城市(镇)总体规划和土地利用总体规划相关规定执行。在市县国土空间规划面向实施后，城镇建设项目应优先在国土空间规划确定的城镇建设用地斑块内选址，建设内容必须符合市县国土空间规划或是原土地利用总体规划、城市(镇)总体规划的控制要求。</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;">因特殊原因，建设项目选址位于国土空间规划确定的城镇建设用地斑块外，应当依程序办理建设用地审批手续，同时根据项目用地规模，相应调整国土空间规划的城镇建设用地布局。各类新城、新区、开发区及产业园区等不得在城镇开发边界外设立。</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;">城镇开发边界外除与生态功能相适宜的公园、旅游配套设施、风景名胜设施、农业设施、农村生活及配套设施、供水设施、区域交通设施、市政工程、能源设施、气象设施，以及监狱、军事、安保、宗教、殡葬、综合防灾和边境口岸等特殊用途设施建设外，原则上不得进行选址建设，各级自然资源行政主管部门不得做出规划许可。</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;">确需建设的应当按程序修改规划及城镇开发边界后再进行选址。涉及生态保护红线、永久基本农田范围的，应按照相应的管控规则进行管控。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(3)动态调整机制</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">为确保城镇开发边界的实施管理适应城镇发展的不确定性，预留充足的发展弹性空间，本文建议城镇开发边界的管控要形成动态调整机制，以 5 年为周期开展城镇开发边界实施管理状况的定期评估。</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;">经评估后确认需要修改的，按程序完成划定方案修改，并经原审批机关批复同意后实施。此外，应设置自动调整程序，应对若干涉及城镇近期重大发展建设、迫切需要进行边界调整的情况，本文主要概括了以下类型：</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;">①国家和省级重点项目是影响民生发展的重大工程，应充分保障其落地实施，新增的土地利用规模及指标单列的国家和省级重点项目，自动纳入城镇开发边界，不占用原城镇开发边界面积。</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;">②围填海工程是国家统一行使对海洋用途调整的重大战略性工程，新增的符合海洋功能区划并位于海洋生态保护红线范围外，并由省自然资源行政主管部门完成竣工验收的围填海用地，自动纳入城镇开发边界，不占用原城镇开发边界面积。</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;">③经法定程序调出永久基本农田、生态保护红线范围的用地，符合地方实际发展需求的，自动纳入城镇开发边界，同时应确保地级以上市市域范围内城镇开发边界面积的占补平衡。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(4)管控传导机制</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">城镇开发边界的管控应与我国现行行政管理体系相对应，建立</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">全国统一、科学高效、责权清晰</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">的管控体系，实现管控要求和管控方式的有效传导。</span></strong>本文建议在衔接国土空间规划体系的基础上，明确各级责权。省级城镇开发边界重点对全省城镇开发边界的规模总量、各地级以上市的规模比例及空间格局分布进行统筹管控，确保城镇开发边界的具体布局与生态保护红线、永久基本农田等底线要素不冲突，侧重战略格局引导及规模总量控制。</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;">市县和乡镇的城镇开发边界要在落实上层次指标控制与格局引导的基础上，结合地方发展实际诉求，优化确定城镇开发边界的具体布局形态，实现矢量化、信息化的精准管控，侧重边界的具体实施管理。</p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="text-align: left;margin-right: 0%;margin-bottom: 30px;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-right: 5px;padding-left: 50px;box-sizing: border-box;"><section style="margin: 10px 0% -55px;transform: translate3d(-50px, 0px, 0px);-webkit-transform: translate3d(-50px, 0px, 0px);-moz-transform: translate3d(-50px, 0px, 0px);-o-transform: translate3d(-50px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 70px;height: 80px;vertical-align: top;overflow: hidden;background-position: 50% 50%;background-repeat: no-repeat;background-size: contain;background-attachment: scroll;padding-left: 11px;background-image: url("http://mmbiz.qpic.cn/mmbiz_gif/KoH4xpDrnibBf1G45pzcfTjsriaHleBib3OM8YMYmDAatJhOmS16znwf8lnH0rfDPxxpGGwrRNOfcrdrWkP1RwTbQ/640?wx_fmt=gif");box-sizing: border-box;"><section style="margin-top: 25px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: justify;color: rgb(255, 255, 255);font-size: 17px;box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">03</strong></p></section></section></section></section><section style="transform: translate3d(-5px, 0px, 0px);margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;padding-top: 3px;padding-bottom: 3px;border-width: 1px 1px 0px;border-radius: 0px;border-style: none none dashed;border-color: rgb(62, 62, 62);box-sizing: border-box;"><section style="text-align: justify;font-size: 16px;color: rgb(55, 80, 114);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></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">城镇开发边界的划定与实施</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">是夯实国土空间规划控制线体系、优化国土空间用途管制的</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">重要手段，</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">能够引导城镇空间开发和城镇建设用地集中布局，促进集约发展，优化城镇形态，为城镇发展预留弹性。</span></strong>在当前国家尚未明确各级国土空间规划具体编制要求及城镇开发边界划定具体技术指引的背景下，本文结合国内外城市、地区的案例研究及广东省先行先试的工作实践，对省级城镇开发边界划定的工作模式、技术方法及管控机制进行探索，主要得到以下几方面启示，以期为其他省市地区开展城镇开发边界的划定工作提供参考。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(1)省市联动的工作组织模式</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">省级城镇开发边界划定既要加强省级层面的统筹部署，又要充分发挥市县层面的自主性与积极性，整个划定的过程应按照<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“自上而下”</span></strong>和<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“自下而上”</span></strong>相结合的模式开展工作，由省、市、县、镇各级主体联动参与，既要有效落实国家和省级的战略格局要求，又要充分衔接地方的发展诉求，<strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">确保划定方法的一致性与划定进度的同步性，最终形成</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">可落地、可监管、可评估</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">的全省城镇开发边界一张图。</span></strong></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section><section style="margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(2)“五定”结合的划定技术方法</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">基于对省级城镇开发边界划定工作的国土面积广、行政层级多及设计要素杂的特点，本文提出了<strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">定容量、定总量、定格局、定边界、定机制</span></strong>的划定技术路线，先识别明确可供城镇开发建设的国土空间容量，再确定具体需要建设的城镇开发边界面积总量，谋划城镇开发边界的总体空间格局，核准具体边界布局形态，最后制定相应的管控机制，全面、系统地推进城镇开发边界的划定、实施与管理。</p><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;vertical-align: top;width: 8%;box-sizing: border-box;"><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;width: 12px;height: 12px;padding: 2px;border-width: 1px;border-style: solid;border-color: rgb(255, 202, 0);transform: rotate(45deg);box-sizing: border-box;"><section style="width: 100%;height: 100%;background-color: rgb(255, 202, 0);box-sizing: border-box;"></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 92%;box-sizing: border-box;"><section style="letter-spacing: 0px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">(3)刚弹结合的管控机制</strong></p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">城镇开发边界的实施管控</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">既要实现对城镇空间开发建设的严格刚性约束，又要体现对城镇发展格局的战略指引，通过</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(162, 18, 18);box-sizing: border-box;">“双线导控”</span></strong><strong style="box-sizing: border-box;"><span style="color: rgb(55, 80, 114);box-sizing: border-box;">的方法可以促进刚弹结合的管控落实。</span></strong>同时，城镇开发边界的实施管控要充分适应城镇开发建设的不确定性，为城镇建设用地布局的调整预留弹性。通过建立动态调校的机制，为城镇开发边界的调整适度预留了窗口，<strong style="box-sizing: border-box;"><span style="box-sizing: border-box;">既满足了城镇开发建设管控的刚性要求，又保障了城镇重大建设项目的弹性变化需求。</span></strong></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="font-size: 13px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;">文章来源丨规划师杂志                                      </p><p style="white-space: normal;box-sizing: border-box;">作者信息丨周祥胜、汤燕良、李禅，等</p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"> 投稿邮箱丨xjxtd@126.com</strong></p><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;">中规建业城市规划设计院   信息中心</strong></p></section><section 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border-box;">中规建业城市规划设计院（北京）有限公司</strong></span></p></section><section style="text-align: center;font-size: 13px;line-height: 1.6;box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(39, 39, 39);box-sizing: border-box;">为人与空间策划沟通的桥梁</span></strong></p><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="color: rgb(39, 39, 39);box-sizing: border-box;">在城市、乡村、景区实践着我们的追求</span></strong></p><p style="box-sizing: border-box;"><br  /></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;line-height: 1;box-sizing: border-box;"><section style="margin-right: 0%;margin-bottom: 5px;margin-left: 0%;text-align: center;line-height: 0.8;box-sizing: border-box;" 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style="box-sizing: border-box;">中规建业城市规划设计院（北京）有限公司</strong></span></p><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">地址：</strong>北京市海淀区学清路9号汇智大厦B座</p><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">电话：</strong>13691099891</p></section></section></section><section style="width: 100%;text-align: right;margin-top: -4px;box-sizing: border-box;"><section style="width: 50px;height: 4px;background-color: rgb(125, 106, 96);box-sizing: border-box;"></section></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;width: 60%;box-shadow: rgb(0, 0, 0) 0px 0px 0px;box-sizing: border-box;"><img class="raw-image" data-ratio="0.9379845" 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