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<p><br  /></p><section label="Powered by gulangu" data-role="outer" style="max-width: 100%;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;letter-spacing: 0.544px;white-space: normal;font-size: 16px;background-color: rgb(255, 255, 255);box-sizing: border-box !important;overflow-wrap: break-word !important;"><section data-id="94208" data-tools="gulangu" style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section data-width="96%" style="margin: 12px auto;max-width: 100%;width: 649.906px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-shadow: rgb(213, 213, 213) 0px 0px 6px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;background: url("http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC5EVEiagnibUpP6POvE200wTQo5iagI34hsB04cMLPNvgM5DR7fLXzIgMTSSeQy6mjtgRA6fCxaFbvjw/640?wx_fmt=png") 0% 100% / 80% no-repeat;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section data-autoskip="1" style="padding: 1em 1em 3em;max-width: 100%;box-sizing: border-box;line-height: 1.75em;letter-spacing: 1.5px;font-size: 14px;overflow-wrap: break-word !important;"><p style="max-width: 621.9px;box-sizing: border-box;min-height: 14px;overflow-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;color: rgb(68, 68, 68);font-family: Helvetica, Arial, sans-serif;overflow-wrap: break-word;word-wrap: break-word !important;">全文刊发在《中国土地科学》2020年5期</span></strong></p><p style="max-width: 621.9px;box-sizing: border-box;min-height: 14px;overflow-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;color: rgb(68, 68, 68);font-family: Helvetica, Arial, sans-serif;overflow-wrap: break-word;word-wrap: break-word !important;">作者</span></strong><strong style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;color: rgb(68, 68, 68);font-family: Helvetica, Arial, sans-serif;overflow-wrap: break-word;word-wrap: break-word !important;">：</span></strong><strong style="line-height: 1.75em;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;background-color: initial;"><span style="max-width: 100%;box-sizing: border-box;color: rgb(68, 68, 68);font-family: Helvetica, Arial, sans-serif;overflow-wrap: break-word;word-wrap: break-word !important;">董子卉，翟国方</span></strong></p><p style="max-width: 621.9px;box-sizing: border-box;min-height: 14px;overflow-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;color: rgb(68, 68, 68);font-family: Helvetica, Arial, sans-serif;overflow-wrap: break-word;word-wrap: break-word !important;">单位：</span></strong><strong style="line-height: 1.75em;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;background-color: initial;"><span style="max-width: 100%;box-sizing: border-box;color: rgb(68, 68, 68);font-family: Helvetica, Arial, sans-serif;overflow-wrap: break-word;word-wrap: break-word !important;">南京大学建筑与城市规划学院</span></strong><strong style="line-height: 1.75em;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;background-color: initial;"></strong></p></section></section></section></section></section><section data-id="93976" data-tools="gulangu" style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="padding: 0.6em;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><img data-ratio="0.06478405315614617" data-type="png" data-width="100%" data-w="602" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgG8gNp2YgfUUXITdYhZo7dNutUguRib3icHea79fC3pRviaFiaGy29h8uKGEELpl5ibZLJEK2ZhclMKmWA/640?wx_fmt=png" style="display: block;box-sizing: border-box !important;overflow-wrap: break-word !important;width: auto !important;visibility: visible !important;"  /><section style="padding-right: 4px;padding-left: 4px;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;border-bottom-right-radius: 15px;border-bottom-left-radius: 15px;box-shadow: rgb(229, 229, 229) 1px 1px 6px;background: rgb(254, 254, 254);box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="padding: 1em 1.4em 1em 0.6em;max-width: 100%;border-bottom-right-radius: 15px;border-bottom-left-radius: 15px;box-shadow: rgb(229, 229, 229) -1px 1px 6px;background: url("http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgG8gNp2YgfUUXITdYhZo7dNYPwseT6L1zDvkT4ddnkahy3LHaxAnF21USaqVbN09paAJia22mzibcbA/640?wx_fmt=png") 0% 100% / 40% no-repeat;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;border-width: 1px 1px medium medium;border-style: solid solid none none;border-color: rgb(91, 113, 126) rgb(91, 113, 126) currentcolor currentcolor;overflow-wrap: break-word !important;"><section style="margin-top: -7px;padding-top: 2px;padding-bottom: 2px;max-width: 100%;width: 22px;background: rgb(254, 253, 254);box-sizing: border-box !important;overflow-wrap: break-word !important;"><img data-ratio="0.7894736842105263" data-type="png" data-w="19" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgG8gNp2YgfUUXITdYhZo7dNjZhZVv8LXPuB7zKMFmmaAyrALgUzLdlia66MibqhGy5QdicctxAjMBGwA/640?wx_fmt=png" style="margin-right: auto;margin-left: auto;display: block;box-sizing: border-box !important;word-wrap: break-word !important;width: auto !important;visibility: visible !important;"  /></section><section data-autoskip="1" style="padding: 0.7em 0.8em 1.2em 1em;max-width: 100%;box-sizing: border-box;line-height: 1.75em;letter-spacing: 1.5px;font-size: 14px;overflow-wrap: break-word !important;"><p style="max-width: 618.8px;box-sizing: border-box;min-height: 14px;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;font-size: 14px;color: rgb(0, 0, 0);"><strong style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;font-family: Helvetica, Arial, sans-serif;word-wrap: break-word !important;">内容提要：</span></strong></span></p><section style="max-width: 618.8px;box-sizing: border-box;line-height: 1.75em;text-indent: 28px;clear: both;min-height: 14px;overflow-wrap: break-word !important;"><span style="font-size: 14px;color: rgb(0, 0, 0);max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;background-color: transparent;">本文系统梳理日本国土空间的用途类型以及管制措施，为中国国土空间的用途管制提供经验借鉴</span><span style="font-size: 14px;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;font-family: Helvetica, Arial, sans-serif;color: rgb(0, 0, 0);word-wrap: break-word !important;letter-spacing: 0.4px;background-color: transparent;">。</span></section><p style="max-width: 618.8px;box-sizing: border-box;min-height: 14px;line-height: 1.75em;text-indent: 2em;overflow-wrap: break-word !important;"><span style="font-size: 14px;color: rgb(0, 0, 0);"><span style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;background-color: transparent;">研究发现</span><span style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;font-family: Helvetica, Arial, sans-serif;word-wrap: break-word !important;background-color: transparent;">：</span></span><span style="font-size: 14px;color: rgb(0, 0, 0);max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;background-color: transparent;">(1)日本国土空间规划与法律体系具有权威性，为国土空间用途管制提供了立法支撑与制度保障；(2)日本国土空间用途管制各部门、各层级职权清晰，能够统一协调国土空间用途管制工作；(3)日本尊重国土空间使用类型的多样性，实施刚柔结合的用途管制制度；(4)日本重视国土空间规划监督管理，保证了规划的实施效力；(5)日本重视国土空间的系统性，保障用途管制的整体性。</span></p><p style="max-width: 618.8px;box-sizing: border-box;min-height: 14px;line-height: 1.75em;text-indent: 2em;overflow-wrap: break-word !important;"><span style="font-size: 14px;color: rgb(0, 0, 0);max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;background-color: transparent;">因此，日本的国土空间用途管制经验对中国有所启示，主要包括加强国土空间用途管制立法、完善国土空间规划协调机制、确立常态化的多维国土空间用途管制监管体系、构建刚柔结合的国土空间用途管制格局、提升国土空间管制体系的完整性和系统性等。</span></p><section style="max-width: 618.8px;box-sizing: border-box;line-height: 1.75em;text-indent: 28px;clear: both;min-height: 14px;overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"  /></section><p style="max-width: 618.8px;box-sizing: border-box;min-height: 14px;overflow-wrap: break-word !important;"><span style="font-size: 14px;color: rgb(0, 0, 0);max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;font-family: Helvetica, Arial, sans-serif;overflow-wrap: break-word;word-wrap: break-word !important;">关键词</span></strong><strong style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;font-family: Helvetica, Arial, sans-serif;overflow-wrap: break-word;word-wrap: break-word !important;">：</span></strong></span><span style="font-size: 14px;color: rgb(0, 0, 0);max-width: 100%;box-sizing: border-box;overflow-wrap: break-word;word-wrap: break-word !important;background-color: transparent;">土地管理；国土空间；用途管制；经验借鉴；日本</span></p></section></section><section style="margin-top: -9px;max-width: 100%;text-align: right;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section data-width="50%" style="max-width: 100%;width: 308.906px;display: inline-block;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section data-width="100%" style="max-width: 100%;width: 308.90625px;height: 1px;overflow: hidden;box-sizing: border-box !important;word-wrap: break-word !important;background: rgb(91, 113, 126);"><br style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"  /></section><section style="margin-top: -5px;padding-top: 2px;padding-bottom: 2px;max-width: 100%;width: 22px;background: rgb(254, 253, 254);box-sizing: border-box !important;overflow-wrap: break-word !important;"><img data-ratio="0.7894736842105263" data-type="png" data-w="19" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgG8gNp2YgfUUXITdYhZo7dNjZhZVv8LXPuB7zKMFmmaAyrALgUzLdlia66MibqhGy5QdicctxAjMBGwA/640?wx_fmt=png" style="margin-right: auto;margin-left: auto;display: block;-webkit-transform: scale(-1);box-sizing: border-box !important;word-wrap: break-word !important;width: auto !important;visibility: visible !important;"  /><strong style=""><span style="max-width: 100%;font-size: 17px;color: rgb(255, 255, 255);box-sizing: border-box !important;word-wrap: break-word !important;">     </span></strong></section></section></section></section></section></section></section></section></section><section style="max-width: 100%;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;letter-spacing: 0.544px;white-space: normal;background-color: rgb(255, 255, 255);box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;text-align: center;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;display: inline-block;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="margin-right: auto;margin-left: auto;max-width: 100%;width: 15px;height: 20px;background-color: rgb(255, 229, 229);box-sizing: border-box !important;overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"  /></section><section style="margin-top: -15px;padding: 3px;max-width: 100%;box-sizing: border-box;display: inline-block;border-width: 1px;border-style: solid;border-color: rgb(174, 220, 204);overflow-wrap: break-word !important;"><section style="padding: 3px 15px;max-width: 100%;box-sizing: border-box;background-color: rgb(244, 244, 244);overflow-wrap: break-word !important;"><strong>一、引  言</strong></section></section></section></section></section></section><section style="margin-bottom: 10px;max-width: 100%;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;letter-spacing: 0.544px;white-space: normal;text-indent: 28px;background-color: rgb(255, 255, 255);box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="font-family: 宋体;font-size: 15px;line-height: 1.75em;text-indent: 29px;">日本作为东亚地区最早编制空间规划的国家，国土空间用途管制开展时间较早，积累了丰富的实践经验，对于中国国土空间用途管制建设具有重要借鉴意义。</span><span style="font-family: 宋体;font-size: 15px;line-height: 1.75em;text-indent: 29px;">鉴于此，本文通过梳理日本国土空间用途管制相关文献，系统分析日本国土空间的用途类型及其管制措施经验，以期为中国落实国土空间用途管制提供参考和借鉴。</span></section><section style="max-width: 100%;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;letter-spacing: 0.544px;white-space: normal;background-color: rgb(255, 255, 255);box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;text-align: center;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;display: inline-block;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="margin-right: auto;margin-left: auto;max-width: 100%;width: 15px;height: 20px;background-color: rgb(255, 229, 229);box-sizing: border-box !important;overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"  /></section><section style="margin-top: -15px;padding: 3px;max-width: 100%;box-sizing: border-box;display: inline-block;border-width: 1px;border-style: solid;border-color: rgb(174, 220, 204);overflow-wrap: break-word !important;"><section style="padding: 3px 15px;max-width: 100%;box-sizing: border-box;background-color: rgb(244, 244, 244);overflow-wrap: break-word !important;"><p style="max-width: 100%;min-height: 1em;letter-spacing: 2px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;">二、日本国土空间规划体系</strong></p></section></section></section></section></section></section><p style="text-indent: 29px;margin-bottom: 10px;line-height: 1.75em;"><span style="font-size: 15px;font-family: 宋体;">2005年7月，为应对经济全球化、国民价值观念多样化以及人口减少等现实课题，日本将《国土综合开发法》修订为《国土形成规划法》，先后编制了2次《国土形成规划（全国规划）》，形成了现阶段以国土综合开发规划、国土利用规划、土地利用基本规划三大规划为核心的国土空间规划体系。</span></p><p style="text-indent: 29px;margin-bottom: 10px;line-height: 1.75em;"><span style="font-family: 宋体;font-size: 15px;">国土形成规划是日本国家层面的空间规划，其核心是明确宏观发展政策和国土空间结构。21世纪以来，国土形成规划由“国土开发”向“国土综合管理”转变，编制主体由过去以国家为主导的模式向国家与地方合作的模式转变，鼓励社会各界参与规划编制。</span></p><p style="text-indent: 29px;margin-bottom: 10px;line-height: 1.75em;"><span style="font-family: 宋体;font-size: 15px;">国土利用规划是从土地资源开发、利用和保护的角度，确定国土利用的基本方针、规模目标、布局和实施措施的纲要性规划，其核心是对土地类别和规模的管控。国土利用规划贯穿于各个行政级别，分为全国、都道府县和市町村三个层次。在全国层面上，国土利用规划与国土形成规划是同时制定、同时颁布和同时实施的，能够较好地保证国土空间规划的一致性与可实施性。</span></p><p style="text-indent: 29px;margin-bottom: 10px;line-height: 1.75em;"><span style="font-size: 15px;font-family: 宋体;color: black;letter-spacing: 0.3px;">土地利用基本规划是以国土形成规划和国土利用规划为基础，对城市地区、农业地区、森林地区、自然公园以及自然保护区五大类型区制定的基础性专项规划，作为国土空间用途管制的主要依据。其内容主要包括两个方面：一是阐述土地利用的基本方向，制定土地利用开发计划，引导全域空间资源的合理利用；二是规定各地区土地利用调整具体事项，根据五类地域重叠地区的调整原则（图1），确定重叠区域的土地利用优先级和土地利用指导方向，统筹协调不同地域的空间布局。</span><br  /></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.815406976744186" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgHqV70kLfT2faLTgStiaKHq2pibFHC0ZVgiczkFnWfbfaDwHTAibZ8Z2TK3Mbsxzc4wjia0jRjpCVjOsibQ/640?wx_fmt=png" data-type="png" data-w="688" style=""  /></p><section style="white-space: normal;max-width: 100%;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;letter-spacing: 0.544px;background-color: rgb(255, 255, 255);box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;text-align: center;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;display: inline-block;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="margin-right: auto;margin-left: auto;max-width: 100%;width: 15px;height: 20px;background-color: rgb(255, 229, 229);box-sizing: border-box !important;overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"  /></section><section style="margin-top: -15px;padding: 3px;max-width: 100%;box-sizing: border-box;display: inline-block;border-width: 1px;border-style: solid;border-color: rgb(174, 220, 204);overflow-wrap: break-word !important;"><section style="padding: 3px 15px;max-width: 100%;box-sizing: border-box;background-color: rgb(244, 244, 244);overflow-wrap: break-word !important;"><p style="max-width: 100%;min-height: 1em;letter-spacing: 2px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;">三、日本国土空间用途管制体系</strong></p></section></section></section></section></section></section><p style="white-space: normal;text-indent: 29px;"><br  /></p><h2 style="margin-bottom: 10px;line-height: 1.75em;"><strong><span style="color: rgb(123, 12, 0);font-family: 黑体;">3.1 城市地区</span></strong></h2><p style="white-space: normal;text-indent: 29px;margin-bottom: 10px;line-height: 1.75em;"><span style="font-size: 15px;"><span style="font-size: 15px;font-family: 宋体;color: black;letter-spacing: 0.4px;">城市规划作为部门专项规划之一，仅限于在城市地区内制定，由国土交通部门负责开展相关规划与空间用途管制工作。城市空间用途管制强调合理利用城市土地，旨在防止城市无序扩张、为城市未来预留发展空间，主要通过区划和开发许可制度两种手段对城市地区的空间用途进行管制。一方面，根据城市扩张状况与发展需求，在城市总体规划中“划线”确定城市规划地区范围，再将城市规划地区划分为城市化促进地区和城市化调整地区（图2），城市化促进地区是已经城市化的地区或未来10年内将要城市化的地区，城市化调整地区则是要抑制其城市化的地区。<span style="font-family: 宋体;color: black;letter-spacing: 0.4px;">《城市规划法》和《建筑基准法》对不同用地类型的规模和目标、容积率、建筑密度、体形等进行严格的控制，限制各类地域的开发建设活动。另一方面，在用途地域划分的基础上建立了开发许可制度，通过设置一系列差异化空间准入条件（表1），充分评估各类用途地域的综合情况，并事前审查各项开发建设活动，对不符合空间用途管</span></span><span style="font-size: 15px;font-family: 宋体;letter-spacing: 0.4px;text-indent: 30px;line-height: 1.6;">制要求的开发建设活动不予批准，最大程度地确保了城市开发秩序及环境品质。</span></span></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.8105095541401274" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgHqV70kLfT2faLTgStiaKHq2cMWRtibEENibO1oDG4oqaK2uy0GFro4rGzial2p4zoymesY9dYtquNxuA/640?wx_fmt=png" data-type="png" data-w="628" style=""  /></p><p style="white-space: normal;text-indent: 29px;"><br  /></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.4507936507936508" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgHqV70kLfT2faLTgStiaKHq2SFfDpWr21ng8qGGF4c9oMu9hbt0ofMR19o4ePXicl5CSibOIDJv97e2A/640?wx_fmt=png" data-type="png" data-w="630" style=""  /></p><section style="text-indent: 2em;margin-bottom: 10px;line-height: 1.75em;"><span style="font-family: 宋体;color: black;letter-spacing: 0.4px;font-size: 15px;">此外，日本还非常重视地下空间的开发利用。日本提出了“立体城市”发展模式，在不扩展城市用地边界、不疏散城市核心功能和人口的前提下, 将居住、就业、娱乐和文化等功能在城市中心区实现立体式整合，将地下空间的开发利用纳入城市规划中进行统筹考虑，由国土交通省负责编制和实施。</span></section><h2 style="margin-bottom: 10px;line-height: 1.75em;"><strong><span style="color: rgb(123, 12, 0);font-family: 黑体;">3.2 农业地区</span></strong></h2><section style="text-indent: 2em;margin-bottom: 10px;line-height: 1.75em;"><span style="font-family: 宋体;color: black;letter-spacing: 0.4px;font-size: 15px;">日本在农业地区采取严格的土地使用管理制度：一方面，都道府县知事根据《城市规划法》（第6条）制定的《农业振兴地域整备法》，综合考虑自然、经济及社会因素划定农业振兴地域范围（图3），制定农业振兴地域的发展政策，严格限制农用地权利移动和用途转用。农业振兴地域所在的市町村须征求农业委员会、农业合作社、土地改良区以及农业合作社的意见，制定《农业振兴地域整备规划》，进一步落实农业振兴政策。另一方面，日本以保护优良耕地、促进土地合理利用为主导，建立了农田流转许可制度（图4），根据耕地条件和城市化状况将农地分为5种类型，通过对不同等级的农田转用进行限制与管理，既能保障优良农田用于农业生产、限制开发建设占用农田，又实现了农田的集约配置与综合利用。</span></section><p style="text-align: center;"><img class="rich_pages" data-ratio="0.8894472361809045" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgHqV70kLfT2faLTgStiaKHq2QnbZ9NiaMVQ707EP3jgRSSUmdfr0qwURowlmn3Gsxb2u0wFxXSMSYYA/640?wx_fmt=png" data-type="png" data-w="597" style=""  /></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.5832167832167832" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgHqV70kLfT2faLTgStiaKHq20PsHES56o3Odh2HWCKayE7RIRauFNTFV8MOcrJN4wKoiaD1dh0LG4bg/640?wx_fmt=png" data-type="png" data-w="715" style=""  /></p><h2 style="margin-bottom: 10px;line-height: 1.75em;"><strong><span style="color: rgb(123, 12, 0);font-family: 黑体;">3.3 森林地区</span></strong></h2><section style="text-indent: 2em;margin-bottom: 10px;line-height: 1.75em;"><span style="font-family: 宋体;color: black;letter-spacing: 0.4px;font-size: 15px;">日本森林地区的用途管制以森林可持续经营为目标，以《森林法》《森林·林业基本法》作为支撑，形成了体系完善的森林计划制度基本框架（图6）。森林计划制度体系主要分为五个层次，各个层级的森林计划具有明确的管理权限，下位森林计划与上位森林计划保持整体一致。</span></section><p style="text-align: center;"><img class="rich_pages" data-ratio="1.212406015037594" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgHqV70kLfT2faLTgStiaKHq2ojoJGicib9icgVm1TJFxYp86ZqJQjiazzeBDlzb29QrBVwLk3JuIGJHd9g/640?wx_fmt=png" data-type="png" data-w="532" style=""  /></p><h2 style="line-height: 1.75em;margin-bottom: 10px;"><span style="color: rgb(123, 12, 0);"><strong><span style="color: rgb(123, 12, 0);font-family: 黑体;">3.4自然公园区</span></strong></span></h2><p style="text-indent: 29px;margin-bottom: 10px;line-height: 1.75em;"><span style="font-family: 宋体;font-size: 15px;">日本将自然公园划分为国立公园、国定公园和都道府县立自然公园三个层级，国立公园由环境部门直接管理，国定公园和都道府县立自然公园由地方政府进行管理。为了妥善利用和保护自然公园，日本根据《自然公园法》和《自然公园法施行规则》等对每个自然公园都制定了公园规划，对自然公园的规划、公园事业、保护、利用、管理组织等方面进行了全面系统的规定，形成了较为完整的自然公园规划体系（图7）。</span></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.6226114649681529" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/jJjQVgHUbgHqV70kLfT2faLTgStiaKHq205icIQKX2QLVw4vCOlz4h3tWYK5ymjqHicOtE84R7pfrMXC8jvR9fETg/640?wx_fmt=png" data-type="png" data-w="628" style=""  /></p><h2><strong><span style="color: rgb(123, 12, 0);font-family: 黑体;">3.5 自然保护区</span></strong></h2><p style="text-indent: 29px;line-height: 1.75em;margin-bottom: 10px;"><span style="font-family: 宋体;font-size: 15px;">针对自然环境保护与自然资源管理，日本出台了《环境基本法》《自然环境保护法》《自然再生推进法》等法律，将自然保护区分为原生自然环境保护区、自然环境保护区和都道府县自然环境保护区三个层级，形成了分工明确、互相协调的自然保护区用途管制体系。其中，原生自然环境保护区是指几乎未受人类活动影响的自然区域，区域内原则上严禁一切开发建设活动，必要时可划定禁止入内的区域。自然环境保护区主要包括优质天然森林、水域、海岸、野生动物栖息地以及特殊地貌地区等，可根据自然环境及其使用情况划定特殊地区、海洋特殊地区、野生动植物保护地区和普通地区，并在各区域内实行不同的开发利用活动限制条件。</span></p><section style="white-space: normal;max-width: 100%;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;letter-spacing: 0.544px;background-color: rgb(255, 255, 255);box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;text-align: center;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="max-width: 100%;display: inline-block;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><section style="margin-right: auto;margin-left: auto;max-width: 100%;width: 15px;height: 20px;background-color: rgb(255, 229, 229);box-sizing: border-box !important;overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"  /></section><section style="margin-top: -15px;padding: 3px;max-width: 100%;box-sizing: border-box;display: inline-block;border-width: 1px;border-style: solid;border-color: rgb(174, 220, 204);overflow-wrap: break-word !important;"><section style="padding: 3px 15px;max-width: 100%;box-sizing: border-box;background-color: rgb(244, 244, 244);overflow-wrap: break-word !important;"><p style="max-width: 100%;min-height: 1em;letter-spacing: 2px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;">四、经验与启示</strong></p></section></section></section></section></section></section><h2><span style="color: rgb(123, 12, 0);"><strong><span style="color: rgb(123, 12, 0);font-family: 黑体;">4.1 日本国土空间用途管制的经验</span></strong></span></h2><section data-role="outer" label="Powered by gulangu"><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong>4.1.1 </strong><strong>以法律法规为基础，构建分级分类的国土空间规划体系</strong></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;text-indent: 29px;"><span style="font-size: 15px;">日本国土空间规划均遵循“先立法后实践”的原则，以具有权威性的法律和规划作为管理实施的基础，对国土空间用途进行严格的控制。其法律体系以《宪法》为基础，包括了《国土形成规划法》《国土利用规划法》等主干法、《城市规划法》《农业振兴地域整备法》《森林法》《自然公园法》与《自然环境保护法》等专项法，以及由各部门和地方政府制定的相关行政法规和标准，为各类规划的编制与实施提供法律支撑。当法律法规不适应或阻碍经济社会发展时，会适时修订，满足社会发展的法律支撑需要。</span></p></section></section></section></section></section><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong>4.1.2 </strong><strong>明确各部门、各层级的用途管制事权，协调各方利益</strong></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;text-indent: 29px;"><span style="font-size: 15px;">日本国土空间用途管制各部门各司其职，上下层级以及同级部门之间具备较为明确的管理界线与职能分工，实现了国家与地方、部门与部门之间纵横结合，能够统一协调国土空间用途管制工作。全国层面的国土形成规划由中央政府主导完成编制，全国规划编制完成后经公众参与评议与“国土规划审议会”审议，由内阁会议决定通过。广域地方规划由“广域地方规划协议会”组织编制，经专家评审和经公众评议后，由国土交通大臣决定通过。都道府县规划、市町村规划由地方行政机构制定和实施。部门专项规划则是在土地利用基本规划的协调下，由国土交通部门、农林水产部门</span><span style="font-size: 14px;font-family: 宋体;">和环保部门分头开展各项规划建设与资源保护活动。</span></p></section></section></section></section></section><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong>4.1.3 </strong><strong>尊重国土空间使用类型的多样性，实施刚柔结合的用途管制制度</strong></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"> 由于日本的土地主要是私有的，土地市场化程度高，用地混合兼容的属性较为突出，在“最小干预原则”的政府调控理念下，对国土空间的用途管制就表现为刚柔结合。日本各都道府县的土地利用基本规划把国土空间划分为当城市地区、农业地区、森林地区等五大板块，既有单一类型的区域，也有混合兼容的区域。该刚性的要刚性，该柔性的要柔性，但并不是放任不管，也有相应的优先使用原则。这种刚柔相结合的用途管制制度，对促进国土空间合理、高效的复合利用以及优化国土空间资源配置发挥了积极的作用。</span></p></section></section></section></section></section><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong>4.1.4 </strong><strong>重视国土空间规划监督管理，保证用途管制高效有力</strong></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;text-indent: 29px;"><span style="font-size: 15px;">为了保证国土空间规划的实施效力，日本政府每年都会就规划的各项目标与实施效果进行评价，对国土空间规划进行持续性的动态监测，并根据检测结果对规划作出及时的调整。在监管手段方面，充分结合静态情报监管与动态国土监测，运用GIS、卫星遥感与通信技术将国土空间的情况进行信息整理，及时将监测信息反馈到相关部门。日本政府将国土空间用途管制的各类监测信息（包括土地调查评价、航拍照片、人口统计数据和土地确权登记数据等）与地理空间信息作为公开数据，结合多主体参与的利益相关者审查机制，构建了国土空间信息共享机制。</span></p></section></section></section></section></section><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong>4.1.5 </strong><strong>重视国土空间的系统性，保障用途管制的整体性</strong></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;">日本的国土空间规划和用途管制，非常重视国土空间的系统性，不仅考虑陆地空间，而且还考量海洋空间。不仅考虑自然生态等内容，而且还考量经济、社会、文化、国际形势等要素。不仅考虑地表、地上空间，而且还统筹考虑地下空间。不仅考虑现在问题的解决，而且还考量未来的整体目标。不仅考虑全国层面的管控，而且还考虑都道府县、市町村等地方政府的具体落地。即便在市町村层面的不同用途类型的空间管制，也是一个体系，有非常具体的准入标准和负面清单。</span></p></section></section></section></section></section></section><p style="text-indent: 28px;margin-bottom: 10px;line-height: 1.75em;"><span style="font-size: 15px;font-family: 宋体;letter-spacing: 0.4px;line-height: 1.6;">当然，日本的国土空间规划与用途管制也不是十全十美的，也有一些教训值得中国注意。比方说追求绝对的区域均衡发展导致整体效率的低下；规划项目实施周期长，有的甚至由于征地困难而迟迟不能完成；东京持续发展，“一极集中”趋势依旧，而地方城市不断收缩，影响地方城市的可持续发展；老龄化、少子化等问题依然严重；地震、洪涝等灾害形势依然严峻。当然，有些问题可能跟国土空间规划和用途管制有部分关系，有些可能关系不大。甚至有的人认为，国土空间规划与用途管制减轻了以上问题的严重性，如果没有国土空间规划与用途管制，这些问题可能会更严重。</span></p><h2 style="white-space: normal;"></h2><h2 style="text-indent: 26px;"><span style="color: rgb(123, 12, 0);"><strong><span style="color: rgb(123, 12, 0);font-family: 黑体;">4.2 启示</span></strong></span></h2><p style="text-indent: 29px;margin-bottom: 10px;line-height: 1.75em;"><span style="font-size: 15px;"><span style="font-size: 15px;font-family: 宋体;">随着中国社会经济的快速发展，也出现了日本历史上曾经出现过的空间无序开发、环境严重破坏和生态系统退化等问题。为解决这个问题，中国</span>2018<span style="font-size: 15px;font-family: 宋体;">年设立了自然资源部。中国和日本的土地制度与国土空间资源禀赋存在较大差异，各自具有独特的自然、经济、政治、社会、文化和历史特征，因此，在用途管制目标、手段、措施等方面，当然不能照搬照抄日本的做法。但是由于国土空间的演化有其共同的一般规律，因此，在谨慎分析研究两国的基本国情和发展阶段的基础上，我们认为日本的国土空间用途管制经验对中国至少有以下启示。</span></span></p><section data-role="outer" label="Powered by gulangu"><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong style="text-indent: 2em;">4.2.1 </strong><strong style="text-indent: 2em;"><span style="font-family: 宋体;">加强国土空间用途管制立法</span></strong><br  /></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;text-indent: 29px;"><span style="font-size: 15px;font-family: 宋体;">目前中国还没有国土空间规划以及用途管制方面的法律法规。因此，当务之急是加快国土空间用途管制立法，明确国土空间用途管制的法律地位与法律效力，对用途管制的主体、内容、程序等内容进行详细的规范，从而明确国家和地方的用途管制的权责，规范国土空间开发利用者的开发利用行为。同时，组织修订相关法律法规，健全林地、水域、草地、湿地等各类自然生态要素的用途管制立法，为国土空间用途管制构建配套的法律法规体系，为国土空间用途管制工作的开展提供立法支撑与制度保障。</span></p></section></section></section></section></section><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong style="text-indent: 2em;">4.2.2 </strong><strong style="text-indent: 2em;"><span style="font-family: 宋体;">完善国土空间规划协调机制</span></strong><br  /></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;text-indent: 29px;"><span style="font-size: 15px;font-family: 宋体;">为提高中国国土空间用途管制的实施效力，必须加强国土空间用途管制横向和纵向的协同，构建纵向层级之间相互衔接、横向部门之间相互协调、社会公众广泛参与的国土空间用途管制制度。一是健全工作组织机制，明确各层级国土空间用途管制的内容、主管部门、工作程序等内容，形成以自然资源部门牵头，不同部门、不同机构之间协作配合的长效机制。二是鼓励居民与地方公共团体参与国土空间用途管制工作，将国土空间用途管制信息向社会公开并及时征求相关利益方意见，提高用途管制的公众参与意识，形成多层级协作的空间规划实施管理机制，提高国土空间用途管制的实施效力。三是有些相关度很高的规划可以同时编制同时审批，减少不同规划之间的矛盾。</span></p></section></section></section></section></section><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong style="text-indent: 2em;">4.2.3 </strong><strong style="text-indent: 2em;"><span style="font-family: 宋体;">确立常态化的多维国土空间用途管制监管体系</span></strong><br  /></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"> <span style="font-family: 宋体;">现阶段中国国土空间资源监督管理制度分散在各个领域，条块分割、不成体系，监督管理效能低下。因此，中国亟需确立常态化、制度化的国土空间用途管制监管体系。一是结合新时期提出的多规合一、生态文明建设与高质量发展的理念，构建国土空间用途管制实施情况的考核评价制度，明晰下一步国土空间用途管制工作的难点重点。二是不断创新评估路径与技术方法，充分使用数据支撑，采用常规统计数据与现代大数据相结合的技术手段，增强国土空间用途管制的客观性、科学性和有效性。三是结合国土空间规划编制工作的全面启动，全面开展国土空间的体检工作，形成“一年一体检，五年一评估”的常态化监管制度。四是国土空间规划相关报告、用途管制相关信息以及体检评估报告等，脱密后尽可能向社会公开，形成全社会参与监管体系。</span></span></p></section></section></section></section></section><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong style="text-indent: 2em;">4.2.4 </strong><strong style="text-indent: 2em;"><span style="font-family: 宋体;">构建刚柔结合的国土空间用途管制格局</span></strong><br  /></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;text-indent: 29px;"><span style="font-size: 15px;"><span style="font-family: 宋体;">目前中国采用“三区三线”作为资源环境的底线管控工具，要求“三线”之间互不交叉重叠，刚性的底线管控思维在保护生态空间和永久保护基本农田时具有积极的意义，十分重要。但中国自然地形、地貌十分复杂，往往生态空间、农业空间、城镇空间三者空间上相互交错，功能上相互叠加，划得过细过碎，不利于国土空间的系统性和整体性，也难以应国土空间发展中的各种不确定性。中国可以适当借鉴日本经验，在</span>“<span style="font-family: 宋体;">三区</span>”<span style="font-family: 宋体;">划定时综合考虑资源禀赋、发展需求、社会环境等因素，该单一的单一，该复合的复合，确定差异化的用途管制目标、方法、手段与具体措施，优化自然资源配置。同时，结合国土空间开发许可制度与用途变更制度，设置不同分区的开发建设准入条件，重点强化建设用地、农业用地及其他用地的管控，构建刚性管控与战略引导相结合的国土开发利用保护格局。</span></span></p></section></section></section></section></section><section data-tools="gulangu" data-id="97593"><section><section style="border-width: 1px;border-style: dashed;border-color: rgb(57, 90, 254);margin: 10px auto;box-sizing: border-box;"><section style="display: flex;justify-content: flex-start;align-items: flex-start;padding: 1em;box-sizing: border-box;background-color: rgb(254, 254, 254);"><section style="width: 15px;margin-right: -18px;margin-top: 4px;"><section style="width: 15px;"><img data-ratio="1.2173913043478262" src="http://mmbiz.qpic.cn/mmbiz_png/7QRTvkK2qC4tsicVCwia1aEWBnKv9DOx2VtyuVTibU0Ldcu7eWPicRXTlW3s28AsdWdiaicoN1XKVmalc9JcSd4YicMFw/640?wx_fmt=png" data-type="png" data-w="23" data-width="100%" style="width: 100%;display: block;"  /></section></section><section data-autoskip="1" style="text-indent: 2em;font-size: 14px;letter-spacing: 1.5px;line-height: 1.75em;"><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"><strong style="text-indent: 2em;">4.2.5 </strong><strong style="text-indent: 2em;"><span style="font-family: 宋体;">提升国土空间用途管制体系的完整性和系统性</span></strong><br  /></span></p><p style="text-align: justify;font-size: 17px;line-height: 27.2px;"><span style="font-size: 15px;"> <span style="font-family: 宋体;">中国新的国土空间规划体系以及管理体制的建立，既是社会发展规律的使然，也是国家治理体系现代化的迫切要求，主要目的就是要改善或解决主体功能区规划、城市总体规划、土地利用规划等不同规划之间在空间上的种种冲突和矛盾问题，但也不能指望它是万能的，有了它就能够一劳永逸，因为与综合交通运输体系规划、生态环境保护规划、综合防灾减灾救灾规划等专项规划以及都市圈规划、城市群规划、大江大河的综合开发治理规划等区域规划仍然有协调的问题，与详细规划也有深化、落实的问题。借鉴日本经验，今后中国可在时空上、要素上、层级上加强国土空间管制体系的完整性和系统性，建成全要素、全周期、全空间、准入条件与负面清单相结合的实时管控体系。</span></span><span style="letter-spacing: 0.54px;background-color: rgb(255, 255, 255);font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;text-align: center;"></span></p></section></section></section></section></section><section data-role="paragraph"><p style="max-width: 100%;min-height: 1em;font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;font-size: 17px;letter-spacing: 0.544px;line-height: 27.2px;white-space: normal;background-color: rgb(255, 255, 255);box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;letter-spacing: 0.47999998927116394px;line-height: 25.5px;orphans: 2;box-sizing: border-box !important;word-wrap: break-word !important;">（本文责编：陈美景；网络编辑：曾 爽）</span></p></section></section><section powered-by="gulangu" style="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;letter-spacing: 0.544px;white-space: normal;background-color: rgb(255, 255, 255);text-align: center;font-size: 15px;color: rgb(84, 84, 84);overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 20px;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="padding: 15px;max-width: 100%;box-sizing: border-box;display: inline-block;width: 502.358px;vertical-align: top;border-width: 1px;border-style: solid;border-color: rgb(197, 226, 224);border-radius: 5px;background-image: url("http://mmbiz.qpic.cn/mmbiz_png/TbfTDrSBmDOIic7apQoPHAh15cLWCHzSyu0QL7m4BJKqtoYkYic7JJ3rCYUtmmJ6XNj0IiaurTa12eDibKNFIGoRicg/640?wx_fmt=jpeg");background-attachment: scroll;background-size: 107.589%;background-position: 233.929% 1.8202%;background-repeat: repeat;overflow-wrap: break-word !important;"><section powered-by="gulangu" style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;font-size: 14px;overflow-wrap: break-word !important;"><p style="max-width: 100%;min-height: 1em;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;color: rgb(110, 110, 110);box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;line-height: 23.2727px;box-sizing: border-box !important;overflow-wrap: break-word !important;">来源：中国土地科学</span></span></p></section></section></section><section powered-by="gulangu" style="max-width: 100%;box-sizing: border-box;line-height: 23.2727px;overflow-wrap: break-word !important;"><section style="margin-top: 0.5em;margin-bottom: 0.5em;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;height: 1px;background-color: rgb(32, 84, 156);overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"  /></section></section></section><section powered-by="gulangu" style="max-width: 100%;box-sizing: border-box;line-height: 23.2727px;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;font-size: 14px;overflow-wrap: break-word !important;"><p style="max-width: 100%;box-sizing: border-box;min-height: 1em;overflow-wrap: break-word !important;">新媒体编辑：刘晓莹</p><p style="max-width: 100%;box-sizing: border-box;min-height: 1em;overflow-wrap: break-word !important;">审读：刘芳</p><p style="max-width: 100%;box-sizing: border-box;min-height: 1em;overflow-wrap: break-word !important;"><span style="max-width: 100%;letter-spacing: 0.544px;box-sizing: border-box !important;overflow-wrap: break-word !important;"></span></p></section></section></section></section></section></section><section powered-by="gulangu" style="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;letter-spacing: 0.544px;white-space: normal;background-color: rgb(255, 255, 255);text-align: center;color: rgb(128, 128, 128);overflow-wrap: break-word !important;"><p style="max-width: 100%;min-height: 1em;text-align: start;box-sizing: border-box !important;overflow-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;color: rgb(123, 12, 0);box-sizing: border-box !important;overflow-wrap: break-word !important;">声明：本文来源：</span><strong style="max-width: 100%;line-height: 25.6px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;color: rgb(123, 12, 0);line-height: 25.6px;box-sizing: border-box !important;overflow-wrap: break-word !important;">授权转自</span><span style="max-width: 100%;color: rgb(123, 12, 0);line-height: 25.6px;font-size: 15px;box-sizing: border-box !important;overflow-wrap: break-word !important;">中国土地科学</span></strong></span></strong><strong style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><strong style="max-width: 100%;line-height: 25.6px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;color: rgb(123, 12, 0);line-height: 25.6px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;box-sizing: border-box !important;overflow-wrap: break-word !important;">（ID</span><strong style="max-width: 100%;color: rgb(84, 84, 84);letter-spacing: 0.544px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;color: rgb(123, 12, 0);box-sizing: border-box !important;overflow-wrap: break-word !important;">：</span></strong></span></strong></span></strong><strong style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><strong style="max-width: 100%;line-height: 25.6px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;color: rgb(123, 12, 0);line-height: 25.6px;font-size: 15px;box-sizing: border-box !important;overflow-wrap: break-word !important;">gh_c372e50c8789</span></strong></span></strong><strong style="max-width: 100%;font-size: 12px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"><strong style="max-width: 100%;line-height: 25.6px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;line-height: 25.6px;color: rgb(123, 12, 0);font-size: 14px;box-sizing: border-box !important;overflow-wrap: break-word !important;">）</span></strong><span style="max-width: 100%;color: rgb(123, 12, 0);font-size: 14px;box-sizing: border-box !important;overflow-wrap: break-word !important;">，版权归原作者所有，如需转载</span><strong style="max-width: 100%;font-size: 14px;box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;color: rgb(123, 12, 0);box-sizing: border-box !important;overflow-wrap: break-word !important;"><strong style="max-width: 100%;line-height: 25.6px;color: rgb(122, 68, 66);box-sizing: border-box !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;color: rgb(123, 12, 0);line-height: 25.6px;box-sizing: border-box !important;overflow-wrap: break-word !important;">请联系原公众号</span></strong></span></strong><span style="max-width: 100%;color: rgb(123, 12, 0);font-size: 14px;box-sizing: border-box !important;overflow-wrap: 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powered-by="gulangu" style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;font-size: 12px;color: rgb(132, 81, 21);overflow-wrap: break-word !important;"><p style="max-width: 100%;box-sizing: border-box;clear: none;min-height: 1em;overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;"  /></p></section></section></section><section powered-by="gulangu" style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="margin-top: 0.5em;margin-bottom: 0.5em;max-width: 100%;box-sizing: border-box;text-align: left;transform: translate3d(0px, 0px, 0px);overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;display: inline-block;vertical-align: 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border-box;text-align: left;overflow-wrap: break-word !important;"><p style="max-width: 100%;box-sizing: border-box;clear: none;min-height: 1em;letter-spacing: 0.544px;font-size: 17px;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;font-size: 14px;color: rgb(132, 81, 21);overflow-wrap: break-word !important;">地址：广西南宁市青秀区月湾路1号南国弈园6楼<br style="max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"  /></span></p><p style="max-width: 100%;box-sizing: border-box;clear: none;min-height: 1em;letter-spacing: 0.544px;font-size: 17px;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;font-size: 14px;color: rgb(132, 81, 21);overflow-wrap: break-word !important;">邮编：530029</span></p><p style="max-width: 100%;box-sizing: border-box;clear: none;min-height: 1em;letter-spacing: 0.544px;font-size: 17px;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;font-size: 14px;color: rgb(132, 81, 21);overflow-wrap: break-word !important;">邮箱：planner@21cn.net</span></p><p style="max-width: 100%;box-sizing: border-box;clear: none;min-height: 1em;letter-spacing: 0.544px;font-size: 17px;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;font-size: 14px;color: rgb(132, 81, 21);overflow-wrap: break-word !important;">网址：www.planners.com.cn</span></p><p style="max-width: 100%;box-sizing: border-box;clear: none;min-height: 1em;letter-spacing: 0.544px;font-size: 17px;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;font-size: 14px;color: rgb(132, 81, 21);overflow-wrap: break-word !important;">电话：0771-2438012</span></p><p style="max-width: 100%;box-sizing: border-box;clear: none;min-height: 1em;letter-spacing: 0.544px;font-size: 17px;overflow-wrap: break-word !important;"><span style="max-width: 100%;box-sizing: border-box;font-size: 14px;color: rgb(132, 81, 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