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<section style="display: none;" data-tools="gulangu" data-label="powered by gulangu"><br  /></section><section data-role="outer" label="Powered by gulangu" style="font-size: 16px;"><section data-tools="gulangu" data-id="87886"><section style="margin-right: auto;margin-left: auto;"><section style="margin-top: 0.5em;margin-bottom: 0.5em;"><section style="height: 1px;background-color: rgb(160, 160, 160);overflow: hidden;"><br  /></section></section><section style="margin: 15px 0%;transform: translate3d(0px, 0px, 0px);"><section style="display: inline-block;vertical-align: top;width: 15%;box-sizing: border-box;padding-right: 1px;padding-left: 1px;" data-width="15%"><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;transform: translate3d(0px, 0px, 0px);"><section style="display: inline-block;vertical-align: top;border-left: 1px solid rgb(160, 160, 160);border-right: 1px solid rgb(160, 160, 160);box-sizing: border-box;padding-right: 5px;padding-left: 5px;color: rgb(160, 160, 160);"><section data-brushtype="text" style="display: inline-block;width: 1em;margin-left: 0.2em;margin-right: 0.2em;float: right;">导读</section><section style="clear: both;line-height: 0;"><br  /></section></section></section></section><section style="display: inline-block;vertical-align: top;width: 85%;" data-width="85%"><section style="transform: translate3d(0px, 0px, 0px);"><section style="color: rgb(97, 182, 204);"><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="font-size: 15px;">生态保护红线处于落地的关键阶段，实践中涉及复杂的物权权属和多元利益主体。主体的利益相关性和行为选择会构成来自国家和公众的支持力，以及生态空间本身、耕地强制保护及建设用地扩张的多方面阻力，直接影响到生态保护红线的落实和管理。本文从多元主体的行为动机和特征出发，建立多元利益主体之间相互的影响关系模型，提出制度策略、信任策略、协调策略和行动策略，实现主体之间良性互动，促进生态保护红线的顺利实施和后续管理。</span></p></section></section></section></section><section style="margin-top: 0.5em;margin-bottom: 0.5em;"><section style="height: 1px;background-color: rgb(160, 160, 160);overflow: hidden;"><br  /></section></section></section></section><p style="text-align: left;margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><section data-tools="gulangu" data-id="us-3526501" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);background-color: rgb(255, 255, 255);max-width: 100%;font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-color="#374aae" data-custom="#374aae" style="max-inline-size: 100%;margin-top: 20px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;letter-spacing: 0.544px;text-align: center;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;padding-right: 8px;padding-left: 8px;box-sizing: border-box;max-width: 100%;display: inline-block;width: 100%;vertical-align: top;border-style: solid;border-width: 1px;border-radius: 0px;border-color: rgb(55, 74, 174);box-shadow: rgb(55, 74, 174) 0px 0px 6px 0px inset;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 11.435%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: -30px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: left;color: rgb(55, 74, 174);font-size: 60px;line-height: 1;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><em style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;">0</strong></em></span></p></section></section></section><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 88.565%;box-shadow: rgb(0, 0, 0) 0px 0px 0px 0px;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: 5px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: justify;color: rgb(28, 28, 28);font-size: 17px;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="text-align: center;max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong>引言<strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong></span></strong></p></section></section></section></section></section></section><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;letter-spacing: 0.544px;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><br  /></p></section></section></section><p style="white-space: normal;text-indent: 0em;"><span style="letter-spacing: 1.5px;caret-color: red;font-size: 15px;text-indent: 30px;color: #0C0C0C;">为落实我国生态文明建设基本战略，近年来中共中央、国务院印发了一系列文件促进生态空间的保护和行动方案具体化，明确在国土空间规划中实现生态保护红线、永久基本农田、城镇开发边界3条控制线的落地和管控。目前，江西、江苏、浙江等15省（区、市）生态保护红线划定方案已获国务院批准，生态保护红线正处于落地的关键阶段。</span><span style="letter-spacing: 1.5px;caret-color: red;color: #888888;font-size: 15px;text-indent: 30px;"><strong><span style="color: rgb(75, 172, 198);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-indent: 30px;"><span style="text-indent: 2em;color: #FFA900;">协调平衡好利益主体的行为和权益，是保障生态保护红线落地的关键。</span></strong></span></strong></span></strong></span></strong></span><br  /></p><section data-role="paragraph" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;box-sizing: border-box !important;outline: none 0px !important;"><br  /></p></section><section data-tools="gulangu" data-id="us-3526501" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);background-color: rgb(255, 255, 255);max-width: 100%;font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-color="#374aae" data-custom="#374aae" style="max-inline-size: 100%;margin-top: 20px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;letter-spacing: 0.544px;text-align: center;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;padding-right: 8px;padding-left: 8px;box-sizing: border-box;max-width: 100%;display: inline-block;width: 100%;vertical-align: top;border-style: solid;border-width: 1px;border-radius: 0px;border-color: rgb(55, 74, 174);box-shadow: rgb(55, 74, 174) 0px 0px 6px 0px inset;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 11.435%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: -30px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: left;color: rgb(55, 74, 174);font-size: 60px;line-height: 1;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><em style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;">1</strong></em></span></p></section></section></section><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 88.565%;box-shadow: rgb(0, 0, 0) 0px 0px 0px 0px;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: 5px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: justify;color: rgb(28, 28, 28);font-size: 17px;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="text-align: center;max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong>影响生态保护红线的多元利益主体的构成及作用力<strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong></span></strong></p></section></section></section></section></section></section><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;letter-spacing: 0.544px;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><br  /></p></section></section></section><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">在生态保护红线划定、落实、管理、监督全过程中起主要作用的主体包括：政府（各级政府及部门）、农村集体组织、个人（主要是农民土地承包者）、企业、专业规划机构和人员、公益群体。主体之间基于权力结构和利益相关所作出的决策和行为之间彼此影响、博弈、权衡，直接影响到城市开发边界和生态保护红线之间的选择结果。</span></p><p><br  /></p><p style="text-align: center;margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><img class="rich_pages js_insertlocalimg" data-ratio="0.7486033519553073" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/Ev6YOunONJO0IlxNDwRDhwR5XEHHFCMHyhqqJcDvmo1xY9Mt1aJl4fibXhCqje5HnkU9SwicxZzjPST3HyC7iawhg/640?wx_fmt=png" data-type="png" data-w="1253" style="width:auto;"></p><p style="text-align: center;margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: rgb(178, 178, 178);text-indent: 34px;font-size: 12px;">多元主体构成模型</span></p><p><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">1.1  多元利益主体的构成</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;font-size: 15px;"><strong style="color: rgb(136, 136, 136);text-align: left;text-indent: 30px;white-space: normal;"><span style="color: rgb(12, 12, 12);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="color: #0C0C0C;text-indent: 2em;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">1.1.1  宏观主体的横向协调性和纵向层级性</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">生态保护红线是宏观的、系统的、涉及公共利益的工程，是作为宏观主体的政府为了维护公共利益，缓解因人类活动所引发的生态环境问题而提出的一种制度手段。然而生态保护红线的划定、保护、利用、修复、管理主要依靠国家政策措施和政府组织运用行政手段来实现。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;font-size: 15px;"><strong style="color: rgb(136, 136, 136);text-align: left;text-indent: 30px;white-space: normal;"><span style="color: rgb(12, 12, 12);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="color: #0C0C0C;text-indent: 2em;"><strong style="text-indent: 2em;"><span style="font-size: 15px;text-indent: 2em;">1.1.2  土地承包者、农村集体组织、企业的直接利益相关性</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">生态保护红线要落地，直接与以农民为主的土地承包者、农村集体组织、企业产生利益冲突。生态空间功能多元化，不仅仅承担生态功能，而且承担一定的生产和生活功能。红线的划定直接影响到企业的生存和发展。合法勘探开发空间的挤压，一定程度上会造成偷采盗采等违法行为的反弹，也会引发产业链条的连锁反应。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;font-size: 15px;"><strong style="color: rgb(136, 136, 136);text-align: left;text-indent: 30px;white-space: normal;"><span style="color: rgb(12, 12, 12);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="color: #0C0C0C;text-indent: 2em;"><strong style="text-indent: 2em;"><span style="font-size: 15px;text-indent: 2em;">1.1.3  专业规划机构和人士的服务性</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">从事国土空间规划的专业机构和城乡规划师、勘测工程师、土地规划师、建筑师、景观设计师等从业人员具备把握空间发展规律、规划技术方法、空间美学原理等知识技能，以职业参与的方式拥有一定的发言权。专业机构和人员是非直接利益的相关人员，其行为受到政府力、市场力、社会力三者力量关系博弈的影响，一方面专业机构和人士受政府委托对生态保护红线进行划定和规划建议，另一方面直接面对各方相关利益群体进行沟通协调。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;"><strong style="text-indent: 2em;"><span style="font-size: 14px;text-indent: 2em;color: rgb(12, 12, 12);">1.1.4  公众群体</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">生态保护红线的公共属性使得社会公众对于生态保护红线持支持态度，形成一定的舆论支持、行动支持并发挥保护与监督作用。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">1.2  主体与生态保护红线之间的支持和阻碍关系模型</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">从国土空间系统来看，三生（生产、生活、生态）空间具有向外演化的趋势和需求，生态保护红线作为“底线”，是面对生产空间、生活空间等其他国土开发空间竞争的主动防御和控制。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">从景观生态学的源汇理论来看，生态保护红线包括生态功能极重要区域、生态环境极敏感脆弱区域、具有潜在重要生态价值的区域等，是生态系统服务功能的“源”。我国现有的国家公园、自然保护区、自然公园等也是生态系统服务功能的核心组成“源”。在生态保护红线对于“源”的划定过程中，有来自多元主体的综合支持力或综合阻力。</span></p><section style="text-indent: 0em;"><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p></section><p style="text-align: center;margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><img class="rich_pages js_insertlocalimg" data-ratio="0.7006980802792321" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/Ev6YOunONJO0IlxNDwRDhwR5XEHHFCMH9v2wHdhKJokbk1M41d0qtBUGocibutxMaVTsah31arx5l9wLRFVmiahA/640?wx_fmt=png" data-type="png" data-w="1146" style="width:auto;"><span style="text-align: justify;"></span></p><p style="text-align: center;margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: rgb(178, 178, 178);text-indent: 34px;font-size: 12px;">多元利益主体与生态保护红线之间的支持和阻碍关系示意图</span></p><p><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;font-size: 15px;"><strong style="color: rgb(136, 136, 136);text-align: left;text-indent: 30px;white-space: normal;"><span style="color: rgb(12, 12, 12);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="color: #0C0C0C;text-indent: 2em;"><strong style="text-indent: 2em;"><span style="font-size: 15px;text-indent: 2em;">1.2.1  综合支持力</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="color: #888888;font-size: 15px;text-align: left;text-indent: 30px;"><strong style="white-space: normal;"><span style="color: rgb(75, 172, 198);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-indent: 30px;"><span style="text-indent: 2em;color: rgb(255, 169, 0);">国家生态文明建设的顶层设计和公众公共利益是生态保护红线落地的综合支持力。</span></strong></span></strong></span></strong></span></strong><span style="color: rgb(12, 12, 12);">政府既是生态保护红线的主要制定者，又是规划执行者，也是规划监管者。在国土空间规划的编制过程中，政府对“三区三线”的空间结构、整体规模、用地布局等具有直接而强有力的影响力，它们是政府主导城乡发展方向的具体空间体现。</span></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;font-size: 15px;"><strong style="color: rgb(136, 136, 136);text-align: left;text-indent: 30px;white-space: normal;"><span style="color: rgb(12, 12, 12);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="color: #0C0C0C;text-indent: 2em;"><strong style="text-indent: 2em;"><span style="font-size: 15px;text-indent: 2em;">1.2.2  综合阻力</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">生态保护红线的阻力主要来源于生态空间本身所具有的土地自然特性，如基于粮食安全，对永久基本农田的强制保护对“源”产生的阻力；基于城市发展的需求，建设用地向外扩张对“源”产生的阻力；其他可开发利用的国土空间对生态保护红线的强烈威胁，形成“源”对外防御所要克服的阻力。</span></p><section data-role="paragraph" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;box-sizing: border-box !important;outline: none 0px !important;"><br  /></p></section><section data-tools="gulangu" data-id="us-3526501" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);background-color: rgb(255, 255, 255);max-width: 100%;font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-color="#374aae" data-custom="#374aae" style="max-inline-size: 100%;margin-top: 20px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;letter-spacing: 0.544px;text-align: center;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;padding-right: 8px;padding-left: 8px;box-sizing: border-box;max-width: 100%;display: inline-block;width: 100%;vertical-align: top;border-style: solid;border-width: 1px;border-radius: 0px;border-color: rgb(55, 74, 174);box-shadow: rgb(55, 74, 174) 0px 0px 6px 0px inset;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 11.435%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: -30px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: left;color: rgb(55, 74, 174);font-size: 60px;line-height: 1;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><em style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;">2</strong></em></span></p></section></section></section><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 88.565%;box-shadow: rgb(0, 0, 0) 0px 0px 0px 0px;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: 5px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: justify;color: rgb(28, 28, 28);font-size: 17px;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="text-align: center;max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong>生态保护红线划定过程中多元利益主体的行为动机和特征<strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong></span></strong></p></section></section></section></section></section></section><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;letter-spacing: 0.544px;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><br  /></p></section></section></section><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">2.1  政府的行为动机和特征</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">一方面，政府通过顶层制度设计，引导国家发展战略；制定政策加强对生态空间的保护；制定相应的规章制度保障生态保护红线的划定和实施。但是在生态保护红线划定的过程中也存在认识不足、规划衔接不畅的问题。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">另一方面，城市建设需求使得建设用地不断扩张，造成生态空间的破碎甚至消亡。在我国现阶段城镇化过程中，建设用地的开发建设是带动城镇经济发展的主要形式之一；各级政府以经济发展为核心，主动通过规划等行政手段，扩大建设用地规划，提高财政收入。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">2.2  直接利益相关人的行为动机和特征</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;font-size: 15px;"><strong style="color: rgb(136, 136, 136);text-align: left;text-indent: 30px;white-space: normal;"><span style="color: rgb(12, 12, 12);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="color: #0C0C0C;text-indent: 2em;"><strong style="text-indent: 2em;"><span style="font-size: 15px;text-indent: 2em;">2.2.1  个体（农民为主的土地承包者）</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">生态保护红线大部分处于城市开发边界以外，与农业生产空间紧密相连。在个体的能动行为中，农民的行为方式对生态保护红线具有直接影响。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">作为理性的行为主体，农民出于提高自身收入水平的需求和权益最大化的目标，主观上生态保护意识淡漠。通过博弈分析，农民是否落实生态保护红线主要与其保护行为获得的生态收益、政府对保护行为的补贴，以及破坏行为的惩罚力度等因素有关。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;font-size: 15px;"><strong style="color: rgb(136, 136, 136);text-align: left;text-indent: 30px;white-space: normal;"><span style="color: rgb(12, 12, 12);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="color: #0C0C0C;text-indent: 2em;"><strong style="text-indent: 2em;"><span style="font-size: 15px;text-indent: 2em;">2.2.2  农村集体组织</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">农村集体组织（村委会）作为最基层组织，负责管理农村集体土地以及农村集体的日常事务和经济发展。基于集体组织发展及村民切身利益的考虑，农村集体组织对土地流转、经营具有决策能力。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #0C0C0C;font-size: 15px;"><strong style="color: rgb(136, 136, 136);text-align: left;text-indent: 30px;white-space: normal;"><span style="color: rgb(12, 12, 12);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="color: #0C0C0C;text-indent: 2em;"><strong style="text-indent: 2em;"><span style="font-size: 15px;text-indent: 2em;">2.2.3  企业</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">企业是城市经济活动的主体，也是城市空间资源分配的主要利益主体，不同生产方式和产品的企业对于城市生态空间的依附力和影响力不同。企业以追求利润和经济价值为基本目标，往往只看见生态空间中巨大的经济价值，而忽略其生态价值和社会价值，过度追求效益最大化。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">2.3  专业机构和人员的行为动机和特征</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">在行为动机上，一方面专业机构人士受雇于政府和企业，同样具有自利驱动的行为动机；规划活动中会一定程度地维护委托方的利益和需求，但是实践中不能独立决策和独立实施规划方案，其行动能力主要体现在与委托方进行专业沟通，以及对公众的引导和解释。另一方面专业人员更多地追求生态理念，认同自然资产的价值，在客观上会增进公共利益，尊重生态系统的客观规律，并通过主动规划方式促进城乡可持续发展。</span></p><section data-role="paragraph" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;box-sizing: border-box !important;outline: none 0px !important;"><br  /></p></section><section data-tools="gulangu" data-id="us-3526501" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);background-color: rgb(255, 255, 255);max-width: 100%;font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-color="#374aae" data-custom="#374aae" style="max-inline-size: 100%;margin-top: 20px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;letter-spacing: 0.544px;text-align: center;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;padding-right: 8px;padding-left: 8px;box-sizing: border-box;max-width: 100%;display: inline-block;width: 100%;vertical-align: top;border-style: solid;border-width: 1px;border-radius: 0px;border-color: rgb(55, 74, 174);box-shadow: rgb(55, 74, 174) 0px 0px 6px 0px inset;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 11.435%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: -30px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: left;color: rgb(55, 74, 174);font-size: 60px;line-height: 1;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><em style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;">3</strong></em></span></p></section></section></section><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 88.565%;box-shadow: rgb(0, 0, 0) 0px 0px 0px 0px;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: 5px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: justify;color: rgb(28, 28, 28);font-size: 17px;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="text-align: center;max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong>多元主体空间权益下的管理策略<strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong></span></strong></p></section></section></section></section></section></section><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;letter-spacing: 0.544px;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><br  /></p></section></section></section><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">生态保护红线是复杂的土地权属和多元空间权益行为人的综合反映，空间是利益的核心、政策是利益差异的根源、制度是利益的保障、规划是利益分配的手段。多元利益主体之间相互合作，发挥支持力，减弱或消除阻力，可以通过制度策略、信任策略、协调策略和行动策略来实现。</span></p><section style="text-align: left;text-indent: 0em;"><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p></section><p style="text-align: center;margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><img class="rich_pages js_insertlocalimg" data-ratio="0.37734375" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/Ev6YOunONJO0IlxNDwRDhwR5XEHHFCMHHMRTBKqX8wQu9SsmFvTtNTkOicuMtYeurFRUWvbqEv86mI3RhyJ7R4w/640?wx_fmt=png" data-type="png" data-w="1280" style="width:auto;"></p><p style="text-align: center;margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: rgb(178, 178, 178);text-indent: 34px;font-size: 12px;">多元利益主体合作策略示意图</span></p><p><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">3.1  制度策略</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">政府通过立法、政策、制度、规划的制定和实施来控制空间权益的分配；顶层设计理念的改变，对生态保护红线的落地具有直接引导作用，可以将生态保护红线纳入法制轨道中。在法律框架下，生态保护红线的划定涉及资源分配及利用的基础性问题，具体的制度设计包括：生态保护红线中林权、矿权等物权确定和用途管理，资源有偿使用、生态环境的补偿或损害赔偿，生态环境承载力监测预警，以及管理者生态责任权限和责任追究等一系列制度。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">3.2  信任策略</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">信任策略的基础是具有法律效力的协议。个人土地承包者、农村集体组织、拥有合法物权的企业基于法律保障的财产拥有权力，依法享有空间利益。通过建立完善的生态补偿措施，明确补偿对象、标准和方式，对现有生态保护红线中保留或退出的人类活动进行经济上的补偿，减弱或消除其对于生态保护红线的阻力，促进生态保护红线的落地。国家不仅是对生态保护进行补贴，更重要的是促进产业的发展和转型，将绿色产业的生态效益体现在实处。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">3.3  协调策略</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">协调策略主要是使各级政府和部门的职能相互协调形成管理合力，推动工作高效进行。例如，生态保护红线在与自然保护地体系衔接过程中，面临着自然保护地多头管理、自然保护地边界不清晰、自然资源资产登记和管理有缺失等问题，需要林草部门基于国家公园、自然保护地、自然公园体系进行重新梳理和落实。国土空间规划中规划目标导向由城镇开发转向生态保护，在保障永久基本农田底线的基础上，合理有序地控制城镇开发边界，形成多规合一的“一张底图”，实现规范性管理。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #366092;"><strong style="color: rgb(136, 136, 136);font-size: 15px;text-align: left;text-indent: 30px;white-space: normal;"><span style="font-size: 14px;color: rgb(54, 96, 146);font-family: 黑体;"><strong style="text-indent: 2em;color: rgb(64, 166, 193);font-size: 16px;"><span style="text-indent: 2em;color: #366092;"><strong style="text-indent: 2em;"><span style="text-indent: 2em;">3.4  行动策略</span></strong></span></strong></span></strong></span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">通过具体规划行动，将生态保护红线的划定变成一个公众参与的、积极互动的过程，由政府、专家、农民集体组织、农民和企业等主体共同研究、协商和讨论，通过征求相关利益人的意见，尊重各方利益和合理诉求，避免社会冲突。保障农民的生活需求，尊重地方发展的意愿，协调相关利益，通过生态空间保护给相关利益人带来实际的收益，从而调动其对生态空间保护的热情，促进当地人建设家园的积极性。</span></p><section data-role="paragraph" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;box-sizing: border-box !important;outline: none 0px !important;"><br  /></p></section><section data-tools="gulangu" data-id="us-3526501" style="max-inline-size: 100%;border-width: 0px;border-style: none;border-color: initial;z-index: 0;min-width: 90px;color: rgb(0, 0, 0);caret-color: rgb(255, 0, 0);background-color: rgb(255, 255, 255);max-width: 100%;font-family: 微软雅黑, "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><section data-color="#374aae" data-custom="#374aae" style="max-inline-size: 100%;margin-top: 20px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;letter-spacing: 0.544px;text-align: center;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;padding-right: 8px;padding-left: 8px;box-sizing: border-box;max-width: 100%;display: inline-block;width: 100%;vertical-align: top;border-style: solid;border-width: 1px;border-radius: 0px;border-color: rgb(55, 74, 174);box-shadow: rgb(55, 74, 174) 0px 0px 6px 0px inset;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 11.435%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: -30px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: left;color: rgb(55, 74, 174);font-size: 60px;line-height: 1;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><em style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;">4</strong></em></span></p></section></section></section><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;display: inline-block;vertical-align: middle;width: 88.565%;box-shadow: rgb(0, 0, 0) 0px 0px 0px 0px;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;margin-top: 5px;margin-bottom: 10px;box-sizing: border-box;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><section style="max-inline-size: 100%;box-sizing: border-box;max-width: 100%;text-align: justify;color: rgb(28, 28, 28);font-size: 17px;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="text-align: center;max-inline-size: 100%;box-sizing: border-box;min-height: 1em;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"><span style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;font-family: Optima-Regular, PingFangTC-light;"><strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong>结论<strong style="max-inline-size: 100%;box-sizing: border-box;cursor: text;max-width: 100%;outline: none 0px !important;overflow-wrap: break-word !important;"></strong></span></strong></p></section></section></section></section></section></section><section data-role="paragraph" style="max-inline-size: 100%;max-width: 100%;letter-spacing: 0.544px;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><p style="max-inline-size: 100%;min-height: 1em;cursor: text;max-width: 100%;box-sizing: border-box !important;outline: none 0px !important;overflow-wrap: break-word !important;"><br  /></p></section></section></section><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">生态保护红线从政策走向实施，管理比划定面临着更大的压力。目前，生态保护红线面临的矛盾和竞争，绝非单纯的技术问题，实际是多元主体基于不同利益产生的竞争，主体的局部性行为可能导致性质截然不同的生态保护结果，给生态系统服务功能的发挥带来正效应或负效应。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;text-indent: 0em;"><span style="font-size: 15px;text-align: left;text-indent: 30px;color: #0C0C0C;">政府作为行为实施主体和管理权力主体，通过制度策略、信任策略、协调策略和行动策略，构建多层次的生态保护红线管理和城乡治理体制，整合市场、社会等多元主体，提供利益协调、激励和惩罚机制，助力生态空间的结构优化和质量提升，实现生态保护红线的落地和可持续发展。</span></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><br  /></p><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: #888888;text-align: left;text-indent: 30px;font-size: 12px;">文章转自：上海城市规划</span></p><section style="text-align: left;text-indent: 0em;"><p style="margin-top: 5px;margin-bottom: 5px;line-height: 1.75em;letter-spacing: 1.5px;"><span style="color: rgb(136, 136, 136);text-indent: 30px;font-size: 12px;">详情请关注《上海城市规划》2020年第1期《基于多元利益主体行为和权益的生态保护红线实施与管理策略》，作者：陈长虹，江西师范大学城市建设学院；刘颂（通信作者），同济大学建筑与城市规划学院。本文内容仅代表作者观点。</span></p></section></section><p><br  /></p><p style="max-width: 100%;min-height: 1em;letter-spacing: 0.544px;white-space: normal;background-color: rgb(255, 255, 255);text-align: center;font-size: 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