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<section style="display: none;" data-tools="gulangu" data-label="powered by gulangu"><br  /></section><p><img data-ratio="0.134375" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohYic4cYPibbyIuL7mo9FSiaLW50CKnnSkGWPOODjJKPA2z8ZibaoTQpyfx0DchXnwovtTVmaDsSscQaaw/640?wx_fmt=png" data-type="png" data-w="640"  /></p><p style="max-width: 100%;min-height: 1em;color: rgba(0, 0, 0, 0.8);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: right;box-sizing: border-box !important;word-wrap: break-word !important;"><br  /></p><p style="max-width: 100%;min-height: 1em;color: rgba(0, 0, 0, 0.8);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: right;box-sizing: border-box !important;word-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;box-sizing: border-box !important;word-wrap: break-word !important;">来源 | 广东省城乡规划设计研究院</span></strong></p><p style="max-width: 100%;min-height: 1em;color: rgba(0, 0, 0, 0.8);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: right;box-sizing: border-box !important;word-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;box-sizing: border-box !important;word-wrap: break-word !important;">撰稿 | 重点实验1室 陈川</span></strong></p><p style="max-width: 100%;min-height: 1em;color: rgba(0, 0, 0, 0.8);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: right;box-sizing: border-box !important;word-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;box-sizing: border-box !important;word-wrap: break-word !important;">审核 | 重点实验1室 徐宁<br style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;overflow-wrap: break-word !important;"  /></span></strong></p><p style="max-width: 100%;min-height: 1em;color: rgba(0, 0, 0, 0.8);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: right;box-sizing: border-box !important;word-wrap: break-word !important;"><strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"><span style="max-width: 100%;font-size: 14px;box-sizing: border-box !important;word-wrap: break-word !important;">编辑 | 总工程师室  蔡焕仪</span></strong></p><p><br  /></p><p><br  /></p><p style="text-align: center;"><img class="rich_pages" data-ratio="0.5551839464882943" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZrYr5eJ7t3ym66aMzN1dCoqooZR4QBiblRHQFaJNQAz3tZ5gjhicH4z7BVhaKlXicLLekY709MI89Qw/640?wx_fmt=png" data-type="png" data-w="897" style=""  /></p><section style="margin-right: 16px;margin-left: 16px;max-width: 100%;color: rgba(0, 0, 0, 0.8);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;line-height: normal;box-sizing: border-box !important;word-wrap: break-word !important;overflow-wrap: break-word !important;"><span style="max-width: 100%;font-size: 12px;letter-spacing: 0.544px;box-sizing: border-box !important;word-wrap: break-word !important;overflow-wrap: break-word !important;">全文共<strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;overflow-wrap: break-word !important;">4469</strong>字，阅读大约需要<strong style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;overflow-wrap: break-word !important;">14</strong>分钟</span></section><hr style="max-width: 100%;color: rgba(0, 0, 0, 0.8);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);border-style: solid;border-right-width: 0px;border-bottom-width: 0px;border-left-width: 0px;border-color: rgba(0, 0, 0, 0.1);transform-origin: 0px 0px 0px;transform: scale(1, 0.5);box-sizing: border-box !important;word-wrap: break-word !important;overflow-wrap: break-word !important;"  /><p style="padding-right: 0.5em;padding-left: 0.5em;max-width: 100%;min-height: 1em;color: rgba(0, 0, 0, 0.8);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;line-height: 1.75em;box-sizing: border-box !important;word-wrap: break-word !important;overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"  /></p><p style="padding-right: 0.5em;padding-left: 0.5em;max-width: 100%;min-height: 1em;color: rgba(0, 0, 0, 0.8);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;line-height: 1.75em;box-sizing: border-box !important;word-wrap: break-word !important;overflow-wrap: break-word !important;"><br style="max-width: 100%;box-sizing: border-box !important;word-wrap: break-word !important;"  /></p><p><br  /></p><p><br  /></p><section style="box-sizing: border-box;font-size: 16px;"><section style="box-sizing: border-box;" powered-by="gulangu"><section style="align-items: center;display: flex;margin: 10px 0%;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: auto;flex: 0 0 auto;border-width: 0px;border-radius: 1px;border-style: none;border-color: rgb(76, 68, 71);overflow: hidden;align-self: flex-start;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;transform: matrix(1, 0, -0.2, 1, 0, 0);border-style: solid;border-width: 0px;border-radius: 0px;border-color: rgb(76, 68, 71);padding: 3px 5px 3px 20px;background-color: rgb(6, 51, 149);box-sizing: border-box;"><section style="color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">一</strong></p></section></section></section></section><section style="display: inline-block;vertical-align: top;width: auto;flex: 100 100 0%;border-width: 0px;height: auto;box-shadow: rgb(0, 0, 0) 0px 0px 0px;align-self: flex-start;box-sizing: border-box;"><section style="margin-top: 3px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="line-height: 1.5;letter-spacing: 0px;color: rgb(76, 68, 71);box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><span style="box-sizing: border-box;"><strong style="box-sizing: border-box;">引言</strong></span></p></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">自我国市场经济形成以来，空间管控到底是多一点刚性还是多一点弹性，是规划决策始终要面对的现实难题。2019年5月，中共中央、国务院印发《关于建立国土空间规划体系并监督实施的若干意见》（以下简称《若干意见》），正式确立了“五级三类四体系”的新时期国土空间规划体系，并将其作为国家空间发展的指南、各类开发保护建设活动的基本依据，实现“多规合一”的核心抓手。作为国土开发保护的基本依据，国土空间规划也必须更加卓有成效地有机统一规划的刚性与弹性，这直接影响到规划的有效性。</span></p><p style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></p><p style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">当前，随着各地国土空间规划编制的全面启动，以构建完整的国土空间规划传导体系为基础，以“三区三线”划定为传导和管控的核心政策工具，各级国土空间规划的刚性管控要点已经基本明确。</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>而长期以来的规划实践表明，只有刚弹结合，为未来发展和建设开发活动留有余地，才能真正落实规划的长期有效性、严肃性和可实施性，真正做到“一张蓝图干到底”，其中，战略留白用地即是提高规划弹性的有益探索。</strong></span></p><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="align-items: center;display: flex;margin: 10px 0%;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: auto;flex: 0 0 auto;border-width: 0px;border-radius: 1px;border-style: none;border-color: rgb(76, 68, 71);overflow: hidden;align-self: flex-start;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;transform: matrix(1, 0, -0.2, 1, 0, 0);border-style: solid;border-width: 0px;border-radius: 0px;border-color: rgb(76, 68, 71);padding: 3px 5px 3px 20px;background-color: rgb(6, 51, 149);box-sizing: border-box;"><section style="color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">二</strong></p></section></section></section></section><section style="display: inline-block;vertical-align: top;width: auto;flex: 100 100 0%;border-width: 0px;height: auto;box-shadow: rgb(0, 0, 0) 0px 0px 0px;align-self: flex-start;box-sizing: border-box;"><section style="margin-top: 3px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="font-size: 15px;line-height: 1.5;letter-spacing: 0px;color: rgb(76, 68, 71);box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="letter-spacing: 0px;font-size: 16px;box-sizing: border-box;">战略留白用地的理论基础与实践经验</span></strong><br style="box-sizing: border-box;"  /></p></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br  /></p><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（一）战略留白用地的理论基础：有限理性与渐进式规划</span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">以1933年《雅典宪章》为标志，理性规划思想正式确立，并直接指导了战后西方国家的规划建设。理性规划的指导思想是工具理性( instrumental rationality) ，</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>即规划是一系列经过理性选择的行为，其目的是通过一张蓝图使相关结果的效能最大化。</strong></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">但理性规划从20 世纪50年代后期开始遭到质疑，人们开始普遍认为蓝图式规划以现在了解掌握的情况来事无俱细、面面俱到地建构未来几十年的图景并不可靠，以不变应对千变万化在逻辑上也经不起推敲。最早对蓝图式规划诘难萌发过程论的是政治经济学家C·E·林德布罗姆（Charles E.Lindblom）。他借鉴控制论专家西蒙（Herbert A. Simon）的“有限理性”（bound rationality）概念，在政治决策和政策分析领域提出了“渐进主义”（incrementalism）概念，后来发展成为为渐进式规划(incremental planning)。他对当时盛行的理性主义蓝图式的规划思想进行抨击，认为在具有高度复杂性和不确定性的现实公共政策的决策过程中，传统的蓝图式的理性综合规划是无能为力的。</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>受此理论影响，西方发达国家规划开始强调动态和弹性留白，即规划目标根据社会经济发展变化而动态变化调整，规划控制指标也开始从刚性控制向弹性引导转变。</strong></span><span style="font-size: 14px;box-sizing: border-box;">战略留白用地规划正是基于有限理性与渐进式规划的基础，对蓝图式规划的修正和完善。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（二）战略留白用地的实践经验</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">纵览国内外弹性规划实践，</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>从规划手段来看，规划具体体现为时序弹性、指标弹性、空间弹性、功能弹性。</strong></span><span style="font-size: 14px;box-sizing: border-box;">其中，时序弹性指视发展阶段决定规划实施与土地投放，如多情景规划；指标弹性制定规划指标浮动区间；空间弹性指划定空间位置变动区间，如在城市集中建设区外划定有条件建设区；功能弹性指允许功能混合与用途转换，如新加坡白地规划引导用地兼容。从规划类型来看，弹性手段覆盖战略层次规划和实施层次规划，</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>其中，时序弹性、指标弹性、空间弹性多见于战略层次的概念规划、总体规划，功能弹性则主要应用于实施层次的控制性详细规划。</strong></span></section><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.2876254" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZrYr5eJ7t3ym66aMzN1dCo6ZdNkgKQyAkTMy65cgePT29axTUhtITeMbznsick5Lex1lVou2U6EaQ/640?wx_fmt=png" data-type="png" data-w="598" style="vertical-align: middle;box-sizing: border-box;"  /></section></section><section style="text-align: center;font-size: 14px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;">图1：弹性规划手段示意图</p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">战略留白用地作为一种弹性规划手段，具体</span></strong></span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>体现为时序弹性和功能弹性：</strong></span><span style="font-size: 14px;box-sizing: border-box;">一方面，其启动使用的时间在规划编制时不能确定；另一方面，其启动后的具体功能不能确定。新加坡是较早在规划中探索战略留白用地的国家，称为城市开发储备用地（reserve site）；近年来，我国的上海、北京等先发城市也展开了探索。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">2013版新加坡概念规划为未来的城市开发扩张储备了约70平方公里的土地（reserve site），约占新加坡全域总土地面积的9%，主要分布在沿海区域（图2）。受限于人多地少的短板，新加坡城市开发储备用地主要为填海土地，用于城市开发边界的扩张。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">《上海市城市总体规划（2017-2035年）》划定了市区内的战略留白空间200平方公里，根据用途分为生态留白空间、潜力发展区域和重大事件用地三种类型（图3）。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">《中共中央国务院关于对 <北京城市副中心控制性详细规划（街区层面）（2016年-2035年）>的批复》提出，</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>“严格管控战略留白，为未来预留空间。”</strong></span><span style="font-size: 14px;box-sizing: border-box;">随后，北京编制城市副中心战略留白规划先行探索战略留白用地的划定和管理方法。2020年4月10日，北京市人民政府正式印发了《北京市战略留白用地管理办法》。北京市明确战略留白用地作为城市建设的“缓冲区”和城市功能完善的“调节池”，原则上在集中建设区内划定，计入城乡建设用地指标，坚守建设用地规模底线，严格禁止突破城市开发边界。北京市2760平方公里城乡建设用地范围内共统筹划定了约132平方公里战略留白用地，</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>具体分为发展机遇型、更新改造型、功能补充型和城市边缘型四种类型。</strong></span></section><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.7069486" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZrYr5eJ7t3ym66aMzN1dCo4tSrVQNhDceL1kfLv0Sqkpv7IykCUUsKhxeBZE0AvickozwGVeYOAIw/640?wx_fmt=png" data-type="png" data-w="331" style="vertical-align: middle;box-sizing: border-box;"  /></section></section><section style="text-align: center;font-size: 14px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;">图2：新加坡2013版概念规划用地规划图</p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.8731343" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZrYr5eJ7t3ym66aMzN1dCoIS8k4BF7moAiaolibrxxXsMl9br9Xmq858CO3icLUD6UlngicnnMuOxm1g/640?wx_fmt=png" data-type="png" data-w="268" style="vertical-align: middle;box-sizing: border-box;"  /></section></section><section style="text-align: center;font-size: 14px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;">图3：上海市战略留白用地分布示意</p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="align-items: center;display: flex;margin: 10px 0%;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: auto;flex: 0 0 auto;border-width: 0px;border-radius: 1px;border-style: none;border-color: rgb(76, 68, 71);overflow: hidden;align-self: flex-start;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;transform: matrix(1, 0, -0.2, 1, 0, 0);border-style: solid;border-width: 0px;border-radius: 0px;border-color: rgb(76, 68, 71);padding: 3px 5px 3px 20px;background-color: rgb(6, 51, 149);box-sizing: border-box;"><section style="color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">三</strong></p></section></section></section></section><section style="display: inline-block;vertical-align: top;width: auto;flex: 100 100 0%;border-width: 0px;height: auto;box-shadow: rgb(0, 0, 0) 0px 0px 0px;align-self: flex-start;box-sizing: border-box;"><section style="margin-top: 3px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="font-size: 15px;line-height: 1.5;letter-spacing: 0px;color: rgb(76, 68, 71);box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="letter-spacing: 0px;font-size: 16px;box-sizing: border-box;">留弹性、强管控——战略留白用地内涵界定</span></strong><br style="box-sizing: border-box;"  /></p></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br  /></p><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">由于发展阶段、土地制度以及土地资源条件等诸多差异，国内外实践对战略留白用地内涵的界定差异较大。当前，新加坡可供城市开发空间已然十分有限，城市开发储备用地以填海用地为主要构成，并用于城市开发边界的扩张。在我国，城镇开发边界作为刚性红线，在划定之初已经考虑保障远期用地扩张的可能。因此，在这种背景下，战略留白用地强调布局和指标双控，指在城镇开发边界的城镇集中建设区范围内，为应对未来发展的不确定性预留的一定规模的规划建设用地。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">具体而言，战略留白用地具有战略特征、弹性特征和管控特征。</span></strong></span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>战略特征，</strong></span><span style="font-size: 14px;box-sizing: border-box;">战略留白用地旨为未来发展留机遇，为长远发展留弹性，为转型升级留契机，为优化功能留空间，是面向未来的复杂性和不确定性的战略举措。</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>弹性特征，</strong></span><span style="font-size: 14px;box-sizing: border-box;">战略留白用地为预留用地，视发展阶段和市场需求决定启用时间，并根据当时的需求灵活决定土地用途。</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>管控特征，</strong></span><span style="font-size: 14px;box-sizing: border-box;">战略留白用地虽然是一类暂不明确开发时间和用途的空间，但附加了一套涉及划定、调整、启用等一系列的管控政策。</span></section><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="align-items: center;display: flex;margin: 10px 0%;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: auto;flex: 0 0 auto;border-width: 0px;border-radius: 1px;border-style: none;border-color: rgb(76, 68, 71);overflow: hidden;align-self: flex-start;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;transform: matrix(1, 0, -0.2, 1, 0, 0);border-style: solid;border-width: 0px;border-radius: 0px;border-color: rgb(76, 68, 71);padding: 3px 5px 3px 20px;background-color: rgb(6, 51, 149);box-sizing: border-box;"><section style="color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">四</strong></p></section></section></section></section><section style="display: inline-block;vertical-align: top;width: auto;flex: 100 100 0%;border-width: 0px;height: auto;box-shadow: rgb(0, 0, 0) 0px 0px 0px;align-self: flex-start;box-sizing: border-box;"><section style="margin-top: 3px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="font-size: 15px;line-height: 1.5;letter-spacing: 0px;color: rgb(76, 68, 71);box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><span style="box-sizing: border-box;"><strong style="box-sizing: border-box;">观长远，重时序——对战略留白用地布局原则的初步思考</strong></span></p></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></p><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（一）观长远，区分两大类战略留白空间</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">据案例分析，北京战略留白用地分为发展机遇型、更新改造型、功能补充型和城市边缘型四种类型，上海战略留白用地分为生态留白空间、潜力发展区域和重大事件用地三种类型。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);">1、上海战略性空间储备用地类型</span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（1）生态留白空间</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">生态留白空间紧邻生态空间布局，</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>一是发挥预控作用，</strong></span><span style="font-size: 14px;box-sizing: border-box;">保留拓展生态廊道的可能性，以增加生态用地规模；</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>二是在生态廊道建成之前，有必要对廊道及相邻地区的用地功能加强管控，</strong></span><span style="font-size: 14px;box-sizing: border-box;">需结合生态环廊的规划建设，再逐步明确与生态主导功能相符的用地类型。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（2）潜力发展区域</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">潜力发展区域以规划“一主、两轴、四翼；多廊、多核、多圈”的市域总体空间结构为导向，</span></strong></span><span style="font-size: 14px;box-sizing: border-box;">重点针对规划主城区、新城、核心镇及周边地区，沿江、沿湾、沪宁、沪杭、沪湖市域发展廊道等未来受市场影响较大，存在不确定因素较多的战略机遇区进行发展空间的预控，优先保障以上地区转型发展和功能提升的空间需求。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（3）重大事件用地</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">上海未来与全球城市功能相匹配的国际经济、文化、体育和旅游等重大事件落地的机会和频率将越来越高。在规划城市用地布局时预留战略留白空间，确保以上重大功能区和重大事件能具备充分的落实条件，并带动城市更新或促进新区发展。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><br  /></span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);">2、北京战略留白用地</span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><br  /></span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（1）发展机遇型</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">在重点功能区周边，选择区位优势明显、空间资源充足、尚未明确建设意向的区域，主要用于主导功能培育、产业发展预留，同时为市级重大事件、重大项目预留空间。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（2）更新改造型</span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">老城区现状低效利用待转型的存量工业区或闲置用地，主要用于探索盘活升级存量用地，优化用地结构，提高土地利用绩效。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（3）功能补充型</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">现状建成区及在建区周边拆迁任务较少、尚未明确建设意向的区域，主要用于补充完善城市综合功能，优先服务周边建成地区。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（4）城市边缘型</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">城市外围地区区位条件可能发生重大改变，近期无明确的发展导向和实施计划的地区，主要用于城市功能拓展，重大基础设施选址预留。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">事实上，本文认为，需要进行战略留白的地区可概括为两大类，即潜力发展地区留白和底线地区留白。</span></strong></span><span style="font-size: 14px;box-sizing: border-box;">潜力发展地区留白以城市发展方向为导向，重点针对未来受市场影响较大，存在不确定因素较多的战略机遇区进行发展空间的预控。底线保障地区留白以完善公共服务、提升宜居环境为目标，预留底线保障用地，一方面，在老城区等用地紧张、公共服务短缺的地区预控；另一方面，在结构性、底线性生态用地周边实施用地预控。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（二）重时序，推进战略留白空间布局优化</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></strong></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">首先，为了优化用地结构，促进节约集约用地，战略留白空间尽量选址在现状低效工业用地、零散农村居民点用地以及集中城市建设区边缘的农用地和未利用地上。根据上海规划战略留白空间的现状用地统计，工业仓储用地和农用地、未利用地为主，占比达到75%，其中工业用地占留白总面积的50%，农用地、水域及未利用地合计约占25%（图4）。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;"><br  /></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">此外，战略留白划定后并非永久不变，而是鼓励与国土综合整治工作结合，在总量不变的前提下，</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>通过统筹规划，逐步优化调整战略留白用地布局。</strong></span><span style="font-size: 14px;box-sizing: border-box;">《北京市战略留白用地管理办法》鼓励各区政府、开发区管委会将减量腾退后的非建设用地与战略留白用地统筹规划、调整布局，将战略留白用地向更具区位优势的区域集中，原匹配的建筑规模指标与战略留白用地捆绑使用（图5）。</span></section><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.5492958" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZrYr5eJ7t3ym66aMzN1dCoYSxpwc4XyEeaZNTryHnsia4Gkm1fl5ED14dlsibb3HYWfjxtbNEaChmg/640?wx_fmt=png" data-type="png" data-w="355" style="vertical-align: middle;box-sizing: border-box;"  /></section></section><section style="text-align: center;font-size: 14px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;">图4：上海市战略留白空间现状用地结构</p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.64" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZrYr5eJ7t3ym66aMzN1dCoF3Jzg1f2hiahAD3cNaktATqal9OUc2uUGhg5ficXrVJxlicCUK3HNOq0Q/640?wx_fmt=png" data-type="png" data-w="275" style="vertical-align: middle;box-sizing: border-box;"  /></section></section><section style="text-align: center;font-size: 14px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;">图5：北京市战略留白用地调整优化示意</p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="align-items: center;display: flex;margin: 10px 0%;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: auto;flex: 0 0 auto;border-width: 0px;border-radius: 1px;border-style: none;border-color: rgb(76, 68, 71);overflow: hidden;align-self: flex-start;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;transform: matrix(1, 0, -0.2, 1, 0, 0);border-style: solid;border-width: 0px;border-radius: 0px;border-color: rgb(76, 68, 71);padding: 3px 5px 3px 20px;background-color: rgb(6, 51, 149);box-sizing: border-box;"><section style="color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">五</strong></p></section></section></section></section><section style="display: inline-block;vertical-align: top;width: auto;flex: 100 100 0%;border-width: 0px;height: auto;box-shadow: rgb(0, 0, 0) 0px 0px 0px;align-self: flex-start;box-sizing: border-box;"><section style="margin-top: 3px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="font-size: 15px;line-height: 1.5;letter-spacing: 0px;color: rgb(76, 68, 71);box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="letter-spacing: 0px;font-size: 16px;box-sizing: border-box;">全过程、分主体——对战略留白用地管理机制的初步思考</span></strong><br style="box-sizing: border-box;"  /></p></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;box-sizing: border-box;"><br  /></p><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（一）传导划定：分类分级，平台管理</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">对应各级国土空间规划内容深度，建立分级传导机制。</span></strong></span><span style="font-size: 14px;box-sizing: border-box;">战略留白用地规模指标由省级国土空间规划确定，并作为刚性管控指标向下位规划逐级分解下达，鼓励各级国土空间规划结合城镇自身需求，立足长远，增补战略留白用地。战略留白用地布局由省级国土空间规划划示，并由下位规划逐级细化落实。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">建立全省战略留白资源储备库，由省级政府统筹管控，</span></strong></span><span style="font-size: 14px;box-sizing: border-box;">对各市战略留白台账进行统一监管，为全省空间格局优化预留空间资源。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（二）过渡调控：分类调控，动态调整</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">过渡调控指在留白地块在未来进一步明确开发导向和开发时序前严格限制范围内新的开发建设行为。</span></strong></span><span style="font-size: 14px;box-sizing: border-box;">对于无建筑物、构筑物的实地留白用地，应结合实际实施临时绿化并挂牌公示，“以绿看地”，严格管控。对于存在建筑物、构筑物的规划留白用地，应加强管控，合法建设可暂时予以保留，除用于保障民生需求外，不得随意改变用途或进行改扩建；违法建设予以严厉打击，并纳入拆违计划限期拆除。市、县级自然资源主管部门具体负责过渡期调控工作的管理和评估，并及时纳入城市体检报告，省级自然资源主管部门实施监管职责。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">在确保总量的前提下，建立留白用地动态评估调整制度，以适应新的发展态势和发展预期。规范战略留白用地调整优化程序，由市政府编制调整优化方案并组织评估论证，经省规划自然资源部门会同有关部门审核、备案后，将相关成果纳入战略留白资源储备库。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（三）腾退收储：加强腾退，鼓励收储</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">对战略留白用地内建筑物、构筑物及相关抵押贷款情况进行调查摸底、分析评估，制定分类清理方案，纳入国土空间近期规划和年度实施计划，有序组织实施。由省级自然资源主管部门下达年度战略留白内用地清理任务，并监督市、县两级相关部门实施。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">充分发挥政府统筹协调力度，增强政府对战略留白用地投放的宏观调控能力，防止近期市场利益逐步驱动局部建设，不断蚕食战略留白资源，鼓励上下级政府联动开展战略留白用地储备工作。</span><span style="font-size: 14px;box-sizing: border-box;color: rgb(123, 12, 0);"><strong>建议省级自然资源主管部门制定全省土地储备计划，并监督市、县两级相关部门实施实施。</strong></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><strong><span style="font-size: 14px;box-sizing: border-box;">（四）启动管控：规划引导，程序监管</span></strong><span style="font-size: 14px;box-sizing: border-box;"></span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="font-size: 14px;box-sizing: border-box;">战略留白用地启动前应重点评估项目与省、市战略导向、产业需求、公共设施配置、交通市政设施保障等方面的匹配度，对超出规划方向预期的项目进行严格控制。</span></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">按照“论证评估-提交申请-意见征询-审议批准”的程序启动战略留白用地投放。</span></strong></span><span style="font-size: 14px;box-sizing: border-box;">战略留白用地经省政府同意启动后，由省自然资源厅会同属地政府同步组织后续规划编制、审批和实施管理，由省行政主管部门审批。全省战略留白资源储备库根据实施启动情况更新。</span></section><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.4335443" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZrYr5eJ7t3ym66aMzN1dCohlOLAV8TXn02ibtqxRUawVPP6N54a09uXkO2e8ReibDnDHZMtto9XDwQ/640?wx_fmt=png" data-type="png" data-w="948" style="vertical-align: middle;box-sizing: border-box;"  /></section></section><section style="text-align: center;font-size: 14px;color: rgb(160, 160, 160);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;">图6：战略留白用地管控示意</p><p style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="align-items: center;display: flex;margin: 10px 0%;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: auto;flex: 0 0 auto;border-width: 0px;border-radius: 1px;border-style: none;border-color: rgb(76, 68, 71);overflow: hidden;align-self: flex-start;box-sizing: border-box;"><section style="text-align: center;margin-right: 0%;margin-left: 0%;transform: translate3d(-10px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;transform: matrix(1, 0, -0.2, 1, 0, 0);border-style: solid;border-width: 0px;border-radius: 0px;border-color: rgb(76, 68, 71);padding: 3px 5px 3px 20px;background-color: rgb(6, 51, 149);box-sizing: border-box;"><section style="color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">六</strong></p></section></section></section></section><section style="display: inline-block;vertical-align: top;width: auto;flex: 100 100 0%;border-width: 0px;height: auto;box-shadow: rgb(0, 0, 0) 0px 0px 0px;align-self: flex-start;box-sizing: border-box;"><section style="margin-top: 3px;margin-right: 0%;margin-left: 0%;box-sizing: border-box;" powered-by="gulangu"><section style="line-height: 1.5;letter-spacing: 0px;color: rgb(76, 68, 71);box-sizing: border-box;"><p style="white-space: normal;box-sizing: border-box;"><span style="box-sizing: border-box;"><strong style="box-sizing: border-box;">结 语</strong></span></p></section></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><br  /></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><section style="white-space: normal;box-sizing: border-box;line-height: 2em;"><span style="color: rgb(123, 12, 0);"><strong><span style="font-size: 14px;box-sizing: border-box;">战略留白用地是体现规划弹性的手段之一。</span></strong></span><span style="font-size: 14px;box-sizing: border-box;">本文初步梳理了战略留白用地的内涵界定、布局原则和管理要求。战略留白用地具有战略特征、弹性特征和管控特征三重属性；其划定应区分潜力发展地区和底线保障地区两大类战略留白空间，并逐步推进战略留白空间布局优化；战略留白用地管理应贯穿划定、过渡、腾退收储、启动全过程，并厘清各级政府及主管部门的管理职责。</span></section><p style="white-space: normal;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><p style="white-space: normal;box-sizing: border-box;"><br  /></p><section style="white-space: normal;font-size: 16px;box-sizing: border-box;text-align: center;"><strong>-END-</strong></section><section style="white-space: normal;font-size: 16px;text-align: right;"><br  /></section><section style="white-space: normal;font-size: 16px;box-sizing: border-box;"><section style="line-height: 2;box-sizing: border-box;"><section style="text-align: center;"><br  /></section></section></section><section style="white-space: normal;font-size: 16px;box-sizing: border-box;"><section style="padding-top: 0.65em;text-align: center;box-sizing: border-box;"><section style="width: 578px;height: 1px;background-color: rgb(72, 72, 72);box-sizing: border-box;line-height: 0;"><br  /></section><section style="margin-top: -0.65em;box-sizing: border-box;"><section style="padding-top: 1px;padding-right: 8px;padding-left: 8px;display: inline-block;vertical-align: top;height: 1.3em;line-height: 1.3em;border-color: rgb(0, 0, 0);border-left-width: 3px;border-left-style: solid;border-right-width: 3px;border-right-style: solid;background-color: rgb(255, 255, 255);box-sizing: border-box;"><p style="box-sizing: border-box;"><strong style="box-sizing: border-box;">近期阅读推荐</strong></p></section></section></section></section><p style="white-space: normal;box-sizing: border-box;"><br  /></p></section></section><section style="white-space: normal;box-sizing: border-box;font-size: 16px;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="box-sizing: border-box;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;text-align: center;max-width: 100%;box-sizing: border-box;letter-spacing: 0.544px;background-color: rgb(255, 255, 255);color: rgb(0, 0, 0);overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(189, 189, 189) 0px 0px 4px;border-width: 0px;border-radius: 5px;border-style: none;border-color: rgb(62, 62, 62);overflow: hidden;overflow-wrap: break-word !important;"><p><a target="_blank" href="http://mp.weixin.qq.com/s?__biz=MzU2MzAwODQ4Nw==&mid=2247495384&idx=1&sn=a2d69a015f973fed9d988054b4a042ee&chksm=fc626850cb15e146e53bdb3c8bd350297016d77f2d5e9351a3892877a8b864524b6614f8fad0&scene=21#wechat_redirect" textvalue="你已选中了添加链接的内容" data-itemshowtype="0" tab="innerlink" data-linktype="1"><span class="js_jump_icon h5_image_link" data-positionback="static" style="top: auto;left: auto;margin: 0px;right: auto;bottom: auto;"><img class="rich_pages" data-cropselx1="0" data-cropselx2="549" data-cropsely1="0" data-cropsely2="251" data-ratio="0.45773524720893144" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZrYr5eJ7t3ym66aMzN1dCogyPtmTOBSO1nLMFqKKJYdsiadX7Yn4Y6afMFydYdOZ5G7PhLt8NXLSQ/640?wx_fmt=png" data-type="png" data-w="627" style="height: 251px;width: 549px;top: auto;left: auto;right: auto;bottom: auto;margin: 0px;"  /></span></a></p><section style="max-width: 100%;box-sizing: border-box;line-height: normal;overflow-wrap: break-word !important;"><section style="padding: 20px 10px;max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(0, 0, 0) 0px 0px 0px;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;text-align: justify;font-size: 15px;overflow-wrap: break-word !important;"><h2 style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;">点击图片阅读全文</h2></section></section></section></section></section></section></section></section></section></section><section style="white-space: normal;box-sizing: border-box;font-size: 16px;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="box-sizing: border-box;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;text-align: center;max-width: 100%;box-sizing: border-box;letter-spacing: 0.544px;background-color: rgb(255, 255, 255);color: rgb(0, 0, 0);overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(189, 189, 189) 0px 0px 4px;border-width: 0px;border-radius: 5px;border-style: none;border-color: rgb(62, 62, 62);overflow: hidden;overflow-wrap: break-word !important;"><p><a target="_blank" href="http://mp.weixin.qq.com/s?__biz=MzU2MzAwODQ4Nw==&mid=2247495300&idx=1&sn=02094395370541c50e936f69ef1f99ec&chksm=fc62680ccb15e11aeccbe7b9153e1e48f07c380016b16cb7d8c590be0a2a3a15dc3c6294f497&scene=21#wechat_redirect" textvalue="你已选中了添加链接的内容" data-itemshowtype="0" tab="innerlink" data-linktype="1"><span class="js_jump_icon h5_image_link" data-positionback="static" style="top: auto;left: auto;margin: 0px;right: auto;bottom: auto;"><img class="rich_pages" data-cropselx1="1" data-cropselx2="550" data-cropsely1="0" data-cropsely2="253" data-ratio="0.4546899841017488" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_jpg/JARNncAyohZxsRUdhsd36nTzOsVDsPdeE4w0BeiciaLFkpveta6QQGDibiamOKsyyVyibZFOBicrv6ia6NDKc00OqnRsA/640?wx_fmt=jpeg" data-type="jpeg" data-w="629" style="height: 253px;width: 556px;top: auto;left: auto;right: auto;bottom: auto;margin: 0px;"  /></span></a></p><section style="max-width: 100%;box-sizing: border-box;line-height: normal;overflow-wrap: break-word !important;"><section style="padding: 20px 10px;max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(0, 0, 0) 0px 0px 0px;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;text-align: justify;font-size: 15px;overflow-wrap: break-word !important;"><h2 style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;">点击图片阅读全文</h2></section></section></section></section></section></section></section></section></section></section><section style="white-space: normal;box-sizing: border-box;font-size: 16px;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="box-sizing: border-box;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;text-align: center;max-width: 100%;box-sizing: border-box;letter-spacing: 0.544px;background-color: rgb(255, 255, 255);color: rgb(0, 0, 0);overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(189, 189, 189) 0px 0px 4px;border-width: 0px;border-radius: 5px;border-style: none;border-color: rgb(62, 62, 62);overflow: hidden;overflow-wrap: break-word !important;"><p><a target="_blank" href="http://mp.weixin.qq.com/s?__biz=MzU2MzAwODQ4Nw==&mid=2247495251&idx=1&sn=2eae8ec66eccb88c302325aced0ce71f&chksm=fc6268dbcb15e1cdd97d8c25f06f672822d90117b97ef5f5a49864c892addcdea78e5fbfce33&scene=21#wechat_redirect" textvalue="你已选中了添加链接的内容" data-itemshowtype="0" tab="innerlink" data-linktype="1"><span class="js_jump_icon h5_image_link" data-positionback="static" style="top: auto;left: auto;right: auto;bottom: auto;"><img class="rich_pages" data-cropselx1="0" data-cropselx2="549" data-cropsely1="0" data-cropsely2="247" data-ratio="0.4599358974358974" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohbHzKNPibq9voRJYeicOH14CgpWphcWLsjXjxkGibvtKWiabak8eaick2bIGjgVvlxuIZSFkZJgN0amG9w/640?wx_fmt=png" data-type="png" data-w="624" style="height: 253px;width: 549px;top: auto;left: auto;right: auto;bottom: auto;"  /></span></a></p><section style="max-width: 100%;box-sizing: border-box;line-height: normal;overflow-wrap: break-word !important;"><section style="padding: 20px 10px;max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(0, 0, 0) 0px 0px 0px;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;text-align: justify;font-size: 15px;overflow-wrap: break-word !important;"><h2 style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;">点击图片阅读全文</h2></section></section></section></section></section></section></section></section></section></section><section style="white-space: normal;box-sizing: border-box;font-size: 16px;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="box-sizing: border-box;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;text-align: center;max-width: 100%;box-sizing: border-box;letter-spacing: 0.544px;background-color: rgb(255, 255, 255);color: rgb(0, 0, 0);overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(189, 189, 189) 0px 0px 4px;border-width: 0px;border-radius: 5px;border-style: none;border-color: rgb(62, 62, 62);overflow: hidden;overflow-wrap: break-word !important;"><p><a target="_blank" href="http://mp.weixin.qq.com/s?__biz=MzU2MzAwODQ4Nw==&mid=2247495206&idx=1&sn=58e40ea3f2499c9b5743a122e2a6ceaf&chksm=fc6268aecb15e1b8d5cbabc6ab393f51f1e7658ca8325d05f1a758ca928e40eb68ef72ec6bf8&scene=21#wechat_redirect" textvalue="你已选中了添加链接的内容" data-itemshowtype="0" tab="innerlink" data-linktype="1"><span class="js_jump_icon h5_image_link" data-positionback="static" style="top: auto;left: auto;right: auto;bottom: auto;"><img class="rich_pages" data-ratio="0.45063694267515925" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohZDUJDc896gIxyO5NCrXA2m6Gn123yTQphkRfCV0HxBnJSyot7F9XqsMkAOC3IvZpXmdnwaecQkTw/640?wx_fmt=png" data-type="png" data-w="628" style="top: auto;left: auto;right: auto;bottom: auto;"  /></span></a></p><section style="max-width: 100%;box-sizing: border-box;line-height: normal;overflow-wrap: break-word !important;"><section style="padding: 20px 10px;max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(0, 0, 0) 0px 0px 0px;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;text-align: justify;font-size: 15px;overflow-wrap: break-word !important;"><h2 style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;">点击图片阅读全文</h2></section></section></section></section></section></section></section></section></section></section><section style="white-space: normal;box-sizing: border-box;font-size: 16px;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="box-sizing: border-box;"><section powered-by="gulangu" style="box-sizing: border-box;"><section style="font-family: -apple-system-font, BlinkMacSystemFont, "Helvetica Neue", "PingFang SC", "Hiragino Sans GB", "Microsoft YaHei UI", "Microsoft YaHei", Arial, sans-serif;text-align: center;max-width: 100%;box-sizing: border-box;letter-spacing: 0.544px;background-color: rgb(255, 255, 255);color: rgb(0, 0, 0);overflow-wrap: break-word !important;"><section style="margin-top: 10px;margin-bottom: 10px;max-width: 100%;box-sizing: border-box;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(189, 189, 189) 0px 0px 4px;border-width: 0px;border-radius: 5px;border-style: none;border-color: rgb(62, 62, 62);overflow: hidden;overflow-wrap: break-word !important;"><p><a target="_blank" href="http://mp.weixin.qq.com/s?__biz=MzU2MzAwODQ4Nw==&mid=2247495139&idx=1&sn=43b5abf48c6d20b346c2bc82670cb65c&chksm=fc626b6bcb15e27daf9d2817e66ed6bc974fffc0086b3435c972955976a3eef06b12b7d29a68&scene=21#wechat_redirect" textvalue="你已选中了添加链接的内容" data-itemshowtype="0" tab="innerlink" data-linktype="1"><span class="js_jump_icon h5_image_link" data-positionback="static" style="top: auto;left: auto;right: auto;bottom: auto;"><img class="rich_pages" data-cropselx1="0" data-cropselx2="549" data-cropsely1="0" data-cropsely2="247" data-ratio="0.4546899841017488" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_jpg/JARNncAyohZDUJDc896gIxyO5NCrXA2mksqQbCAt2iaDnPSxq91HkAibicdoyiakutuUUgS2iaFwCwkgWc9PjK2AA4A/640?wx_fmt=jpeg" data-type="jpeg" data-w="629" style="height: 250px;width: 549px;top: auto;left: auto;right: auto;bottom: auto;"  /></span></a></p><section style="max-width: 100%;box-sizing: border-box;line-height: normal;overflow-wrap: break-word !important;"><section style="padding: 20px 10px;max-width: 100%;box-sizing: border-box;display: inline-block;width: 549.094px;vertical-align: top;box-shadow: rgb(0, 0, 0) 0px 0px 0px;overflow-wrap: break-word !important;"><section style="max-width: 100%;box-sizing: border-box;text-align: justify;font-size: 15px;overflow-wrap: break-word !important;"><h2 style="max-width: 100%;box-sizing: border-box !important;overflow-wrap: break-word !important;">点击图片阅读全文</h2></section></section></section></section></section></section></section></section></section></section><section style="white-space: normal;"><section powered-by="gulangu"><section><section powered-by="gulangu"><section><section><section><section><img class="rich_pages" data-ratio="0.5513029315960912" data-s="300,640" src="http://mmbiz.qpic.cn/mmbiz_png/JARNncAyohbQwnXqDEcwbbxibnew5X4vickfcFLERdNX3B3c2XpQ2H1JWPPvXePEpGicb1Oh7jnBXWpeiasImaoBEA/640?wx_fmt=png" data-type="png" data-w="1228" style="letter-spacing: 0.544px;box-sizing: border-box !important;overflow-wrap: break-word !important;visibility: visible !important;width: 677px !important;"  /></section></section></section></section></section></section></section></section><p><br  /></p>
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