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<section style="box-sizing: border-box;font-style: normal;font-weight: 400;text-align: justify;font-size: 16px;"><section style="margin: 10px 0px;padding-top: 1.3em;box-sizing: border-box;" powered-by="gulangu"><section style="border-top: 2px solid rgb(33, 71, 215);border-bottom: 2px solid rgb(33, 71, 215);box-sizing: border-box;"><section style="box-sizing: border-box;"><section style="text-align: left;margin-top: -16px;margin-left: 30%;margin-right: 30%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;box-sizing: border-box;"><section style="transform: rotate(45deg);-webkit-transform: rotate(45deg);-moz-transform: rotate(45deg);-o-transform: rotate(45deg);box-sizing: border-box;"><section style="width: 30px;height: 30px;border-left: 2px solid rgb(33, 71, 215);border-top: 2px solid rgb(33, 71, 215);background-color: rgb(255, 255, 255) !important;box-sizing: border-box;"><section style="width: 22px;height: 22px;margin: 2px;border-width: 2px;border-style: solid;border-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="width: 16px;height: 16px;margin: 1px auto auto;border-width: 1px;border-style: solid;border-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="width: 0px;margin: 1px auto auto;border-left: 12px solid rgb(33, 71, 215);border-bottom: 12px solid transparent !important;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section></section></section></section></section><section style="text-align: left;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: center;font-size: 14px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">点击上方“”可订阅哦！</p></section></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(58, 140, 226);padding: 10px;background-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="margin: 10px 0px;box-sizing: border-box;" powered-by="gulangu"><section style="width: 100%;padding: 15px 10px 25px;border-radius: 16px;margin-bottom: -30px;background-color: rgb(255, 255, 255);box-sizing: border-box;"><section style="text-align: left;color: rgb(56, 30, 5);box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;text-align: justify;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">作者深圳市城市规划设计研究院有限公司主任规划师、哈尔滨工业大学(深圳) 博士研究生赵广英，深圳市城市规划设计研究院有限公司总师室主任、副总规划师李晨<span style="letter-spacing: 0px;text-indent: 0px;box-sizing: border-box;">在《规划师》2020年第9期撰文，</span>文章在总结“三区三线”规划相关研究的基础上，通过思辨其划定逻辑及对生态文明改革的价值，提出生态文明体制下“三区三线”的规划治理逻辑：应加强对各类空间性规划管控制度的整合，建立口径一致、权责统一的规划管理制度体系；通过对自上而下的“三区三线”相关制度的梳理，建立与事权一致的“三区三线”分层、分级管控体系；基于规划编制、审批、实施与监督体系，强化战略留白，完善规划编制体系，提高规划编制的科学性和实施性。</p></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="background-color: rgb(33, 71, 215);height: 1px;box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="width: 100%;background-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="padding: 5px 10px;box-sizing: border-box;"><section style="text-align: left;color: rgb(255, 255, 255);font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[关键词]国土空间规划；三区三线；规划治理；管控体系</p></section></section></section></section><section style="text-align: left;color: rgb(56, 30, 5);font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[文章编号]1006-0022(2020)09-0077-07　</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[中图分类号]TU984.11+5　</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[文献标识码]B</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">[引文格式]赵广英，李晨．生态文明体制下“三区三线”管控体系建构[J]．规划师，2020(9)：77-83．</p></section></section><section style="height: 30px;border-bottom-width: 5px;border-bottom-style: solid;display: inline-block;vertical-align: top;border-radius: 1em;box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="margin: 0.5em 0px;text-align: center;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="0.3692308" data-w="65" src="http://mmbiz.qpic.cn/mmbiz_gif/ibWCnRAEsMdMqxtHuIGiansGjGuJYHs6VeicJ09g5J3ecO56JIk4iaYzV53MzsLaOgkicNrAtLbCsTSk3iazibEo9gSiaQ/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="width: 9px;height: 9px;float: left;border-top: 2px solid rgb(33, 71, 215);border-left: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 9px;height: 9px;float: right;border-top: 2px solid rgb(33, 71, 215);border-right: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="margin: -5px 0px;padding: 0px 4px;box-sizing: border-box;"><section style="border-width: 1px;border-style: solid;border-color: rgb(33, 71, 215);padding: 10px;background-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="font-size: 18px;color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">一</strong></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;"> “三区三线”的划定逻辑</strong></p></section></section></section><section style="width: 9px;height: 9px;float: left;border-bottom: 2px solid rgb(33, 71, 215);border-left: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 9px;height: 9px;float: right;border-bottom: 2px solid rgb(33, 71, 215);border-right: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="border-width: 1px;border-style: dashed;border-color: black;padding: 3px;box-sizing: border-box;"><section style="border-color: rgb(33, 71, 215);border-width: 1px;border-style: solid;padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">在国土空间总体规划的编制实践中，<span style="box-sizing: border-box;">技术管理逻辑和制度逻辑同时存在。无</span><span style="box-sizing: border-box;">论是各省、市空间规划试点，还是相关</span><span style="box-sizing: border-box;">的技术性指导性文件，对于“三线”的</span><span style="box-sizing: border-box;">划定逻辑基本一致，均是建立在要素识</span><span style="box-sizing: border-box;">别、评价基础上的图层叠加，最后通过</span><span style="box-sizing: border-box;">指标约束的方法对评价出来的优先级进</span><span style="box-sizing: border-box;">行技术、行政综合决策，“三区三线”</span><span style="box-sizing: border-box;">的优化同样如此。在“三区三线”的规</span><span style="box-sizing: border-box;">划中，还有一种制度逻辑的规划方法，</span><span style="box-sizing: border-box;">即通过整理城乡规划、土地利用规划、</span><span style="box-sizing: border-box;">主体功能区规划、生态规划和环境保护</span><span style="box-sizing: border-box;">规划等类型的规划成果，对其长期稳定</span><span style="box-sizing: border-box;">的、依法审批的城镇空间、生态空间和</span><span style="box-sizing: border-box;">农业空间中的各类指标、边界及控制线</span><span style="box-sizing: border-box;">进行整合，分别建立对应的城镇开发边</span><span style="box-sizing: border-box;">界、生态保护红线及永久基本农田保护</span><span style="box-sizing: border-box;">区备选区。同时，运用“双评价”的方</span><span style="box-sizing: border-box;">法，分别建立城镇空间、生态空间和农</span><span style="box-sizing: border-box;">业空间的备选区。进而，对“三线”“三</span><span style="box-sizing: border-box;">区”的备选区展开逻辑分析和行政决策，</span><span style="box-sizing: border-box;">综合得到“三区三线”划定方案。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">总之，各类技术性的评价是国土空<span style="box-sizing: border-box;">间规划的基础，只有明确评价对象，厘</span><span style="box-sizing: border-box;">清评价中的逻辑问题，同时满足评价方</span><span style="box-sizing: border-box;">案的科学性与实用性，才能为国土空间</span><span style="box-sizing: border-box;">规划提供有效的决策支撑。而制度逻辑</span><span style="box-sizing: border-box;">需要协调的各类控制线管理制度则是“三</span><span style="box-sizing: border-box;">区三线”划定的核心，是从技术逻辑转</span><span style="box-sizing: border-box;">变为行政逻辑的必要过程。技术逻辑是</span><span style="box-sizing: border-box;">一种效率优先的工作方法，而制度逻辑</span><span style="box-sizing: border-box;">更侧重制度公平和依法行政。就国土空</span><span style="box-sizing: border-box;">间规划编制过程中“三区三线”的划定</span><span style="box-sizing: border-box;">而言，单纯运用技术逻辑方式划定的“三</span><span style="box-sizing: border-box;">区三线”可能面临难以实施的困境，二</span><span style="box-sizing: border-box;">者往往需要综合运用。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">当前，在国家城镇化进程进入“下<span style="box-sizing: border-box;">半场”，生态资源保护成为可持续发展</span><span style="box-sizing: border-box;">的根本大计，需要在自然资源管理和生</span><span style="box-sizing: border-box;">态保护方面加强国家干预的背景下，国</span><span style="box-sizing: border-box;">家空间治理的基本逻辑是实施整体性治</span><span style="box-sizing: border-box;">理、根除空间冲突、建设生态文明。在</span><span style="box-sizing: border-box;">新的国土空间规划编制中，基于各地试</span><span style="box-sizing: border-box;">点的经验，“三区三线”划定的理论、</span><span style="box-sizing: border-box;">实践基础已经相对丰富，但从规划管控</span><span style="box-sizing: border-box;">的视角看，仍存在广泛的内涵模糊、逻</span><span style="box-sizing: border-box;">辑不清及空间协调机制不足等问题。因</span><span style="box-sizing: border-box;">此，研究国土空间规划的编制逻辑，思</span><span style="box-sizing: border-box;">辨“三区三线”划定的逻辑特征，探讨</span><span style="box-sizing: border-box;">生态文明体制下“三区三线”的规划管</span><span style="box-sizing: border-box;">控逻辑，对形成关注自然和人文，生产、</span><span style="box-sizing: border-box;">生活和生态平衡，建立口径一致、权责</span><span style="box-sizing: border-box;">统一的“三区三线”分层、分级管控体系，</span><span style="box-sizing: border-box;">完善规划编制、审批、实施与监督体系</span><span style="box-sizing: border-box;">具有重要参考意义，是避免“穿新鞋，</span><span style="box-sizing: border-box;">走老路”的重要途径。</span></p></section></section></section></section><section style="margin: 0.5em 0px;text-align: center;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="0.3692308" data-w="65" src="http://mmbiz.qpic.cn/mmbiz_gif/ibWCnRAEsMdMqxtHuIGiansGjGuJYHs6VeicJ09g5J3ecO56JIk4iaYzV53MzsLaOgkicNrAtLbCsTSk3iazibEo9gSiaQ/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="width: 9px;height: 9px;float: left;border-top: 2px solid rgb(33, 71, 215);border-left: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 9px;height: 9px;float: right;border-top: 2px solid rgb(33, 71, 215);border-right: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="margin: -5px 0px;padding: 0px 4px;box-sizing: border-box;"><section style="border-width: 1px;border-style: solid;border-color: rgb(33, 71, 215);padding: 10px;background-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="font-size: 18px;color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">二</strong></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;"></strong><strong style="box-sizing: border-box;">生态文明体制改革下“三区三线”</strong><strong style="box-sizing: border-box;">的核心价值</strong></p></section></section></section><section style="width: 9px;height: 9px;float: left;border-bottom: 2px solid rgb(33, 71, 215);border-left: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 9px;height: 9px;float: right;border-bottom: 2px solid rgb(33, 71, 215);border-right: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="border-width: 1px;border-style: dashed;border-color: black;padding: 3px;box-sizing: border-box;"><section style="border-color: rgb(33, 71, 215);border-width: 1px;border-style: solid;padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">目前，生态文明已被写入《中华人<span style="box-sizing: border-box;">民共和国宪法》，成为国家战略。生态</span><span style="box-sizing: border-box;">文明体制改革的根本逻辑是完善国家治</span><span style="box-sizing: border-box;">理体系和实现治理能力现代化，着力于</span><span style="box-sizing: border-box;">绿色发展，解决突出环境问题、保护生</span><span style="box-sizing: border-box;">态系统和改革生态环境监管体制，协调</span><span style="box-sizing: border-box;">人与自然的关系，维护“生命共同体”，</span><span style="box-sizing: border-box;">这也是生态文明理念下的国土空间规划</span><span style="box-sizing: border-box;">改革的核心任务。“三区三线”划定中，</span><span style="box-sizing: border-box;">“三区”旨在协调城乡功能布局，建构</span><span style="box-sizing: border-box;">生产、生活和生态系统的完整性、协调</span><span style="box-sizing: border-box;">性，侧重国土空间土地用途管控层面的</span><span style="box-sizing: border-box;">技术统筹。“三线”旨在平衡城镇发展、</span><span style="box-sizing: border-box;">生态保护和粮食生产的关系，保障安全、</span><span style="box-sizing: border-box;">可持续发展底线，强化生态系统、生产</span><span style="box-sizing: border-box;">系统的保护、管理和监督，侧重自然资</span><span style="box-sizing: border-box;">源的空间治理。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">十九届三中全会后，推进国家治理<span style="box-sizing: border-box;">体系和治理能力现代化成为全面深化改</span><span style="box-sizing: border-box;">革的总目标。在生态文明体制改革背景</span><span style="box-sizing: border-box;">下，“三区三线”作为谋划国土空间发</span><span style="box-sizing: border-box;">展和治理的技术工具，在国土空间用途</span><span style="box-sizing: border-box;">管控中发挥着战略引领、制度治理的双</span><span style="box-sizing: border-box;">重作用。一方面，“三区三线”是国土</span><span style="box-sizing: border-box;">空间规划发挥战略引领作用的主要工作</span><span style="box-sizing: border-box;">抓手。目前，多数城市都相继结束了快</span><span style="box-sizing: border-box;">速增量扩张的进程，步入存量优化和战</span><span style="box-sizing: border-box;">略性增长并存的发展阶段，以土地财政</span><span style="box-sizing: border-box;">为主要动力的快速城镇化模式正在转变。</span><span style="box-sizing: border-box;">这客观上要求城市转型规划管控方式，</span><span style="box-sizing: border-box;">关注“以人民为中心”的规划服务，关</span><span style="box-sizing: border-box;">注高品质的发展，从区域统筹和战略预</span><span style="box-sizing: border-box;">判的角度谋划空间发展的可持续性，强</span><span style="box-sizing: border-box;">化空间的战略性留白，提高国土空间的</span><span style="box-sizing: border-box;">使用效率。另一方面，在过去几十年，</span><span style="box-sizing: border-box;">主管部门组织技术人员开展规划编制的过</span><span style="box-sizing: border-box;">程中，规划实质上发挥了政府在空间管理</span><span style="box-sizing: border-box;">权上的让渡作用。在完善以用途管控为主</span><span style="box-sizing: border-box;">体的规划治理体系过程中，“三区三线”</span><span style="box-sizing: border-box;">制度的建立应妥善处理技术与管理的逻</span><span style="box-sizing: border-box;">辑关系，完善控制线管理制度，降低决</span><span style="box-sizing: border-box;">策成本和风险，提高规划管理效率。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">总之，国土空间规划作为统筹国土<span style="box-sizing: border-box;">空间开发、保护、整治的总体部署，是</span><span style="box-sizing: border-box;">建立协调有序的国土开发保护格局，由</span><span style="box-sizing: border-box;">自然资源部门统一行使所有国土空间用</span><span style="box-sizing: border-box;">途管制，完善国土空间规划体系的重点。</span><span style="box-sizing: border-box;">建构“三区三线”管控体系，有利于探</span><span style="box-sizing: border-box;">索空间规划体系和规划协调机制，构建</span><span style="box-sizing: border-box;">全国统一、相互衔接、分级管理的国土</span><span style="box-sizing: border-box;">空间规划体系，实现空间治理体系的提</span><span style="box-sizing: border-box;">升，践行生态文明体制改革的重要举措。</span><span style="box-sizing: border-box;">研究“三区三线”管控体系，其价值在</span><span style="box-sizing: border-box;">于维护国土空间的整体性、规划治理体</span><span style="box-sizing: border-box;">系的系统性，注重生态保护与城乡发展</span><span style="box-sizing: border-box;">平衡，强调不同层次空间管控和引导的</span><span style="box-sizing: border-box;">差异性，兼顾管理效率和公平。</span></p></section></section></section></section><section style="margin: 0.5em 0px;text-align: center;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="0.3692308" data-w="65" src="http://mmbiz.qpic.cn/mmbiz_gif/ibWCnRAEsMdMqxtHuIGiansGjGuJYHs6VeicJ09g5J3ecO56JIk4iaYzV53MzsLaOgkicNrAtLbCsTSk3iazibEo9gSiaQ/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="box-sizing: border-box;"><section style="width: 9px;height: 9px;float: left;border-top: 2px solid rgb(33, 71, 215);border-left: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 9px;height: 9px;float: right;border-top: 2px solid rgb(33, 71, 215);border-right: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="margin: -5px 0px;padding: 0px 4px;box-sizing: border-box;"><section style="border-width: 1px;border-style: solid;border-color: rgb(33, 71, 215);padding: 10px;background-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="font-size: 18px;color: rgb(255, 255, 255);box-sizing: border-box;" powered-by="gulangu"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">三</strong></p><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;"></strong><strong style="box-sizing: border-box;">生态文明体制下的“三区三线”</strong><strong style="box-sizing: border-box;">管控体系建构逻辑</strong></p></section></section></section><section style="width: 9px;height: 9px;float: left;border-bottom: 2px solid rgb(33, 71, 215);border-left: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 9px;height: 9px;float: right;border-bottom: 2px solid rgb(33, 71, 215);border-right: 2px solid rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="display: block;box-sizing: border-box;" powered-by="gulangu"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;"><section style="border-width: 1px;border-style: dashed;border-color: black;padding: 3px;box-sizing: border-box;"><section style="border-color: rgb(33, 71, 215);border-width: 1px;border-style: solid;padding: 10px;box-sizing: border-box;"><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="padding: 2px;display: inline-block;background-color: rgb(156, 94, 21);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(33, 71, 215);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（一）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">建立口径一致、权责统一的规划管理制度体系</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">改革开放以来，住建、国土、环保<span style="box-sizing: border-box;">及海洋等部门都根据自身的职权，相继</span><span style="box-sizing: border-box;">建立了各自领域的空间管理制度，深化</span><span style="box-sizing: border-box;">国家治理，强化对国土空间开发、保护</span><span style="box-sizing: border-box;">的管控。主要包括：与城镇开发相关的</span><span style="box-sizing: border-box;">城乡规划制度、土地利用规划制度、主</span><span style="box-sizing: border-box;">体功能区规划制度、建设用海制度、建</span><span style="box-sizing: border-box;">设用地规划许可证制度及城市蓝线、绿</span><span style="box-sizing: border-box;">线管理制度等；与生态保护相关的生态</span><span style="box-sizing: border-box;">公益林制度、自然保护区制度、饮用水</span><span style="box-sizing: border-box;">源保护区制度、湿地公园制度、动植物</span><span style="box-sizing: border-box;">栖息地制度、生态控制线制度、主体功</span><span style="box-sizing: border-box;">能区划制度、风景名胜区制度、森林公园</span><span style="box-sizing: border-box;">制度、国家公园制度、海岸线制度和珍稀</span><span style="box-sizing: border-box;">野生动植物种栖息地制度等；与基本农田</span><span style="box-sizing: border-box;">相关的永久基本农田保护制度、耕地管理</span><span style="box-sizing: border-box;">制度和永久基本农田整备区制度等。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">这些管理制度多建立在城镇化快速<span style="box-sizing: border-box;">推进阶段“人民日益增长的物质文化需</span><span style="box-sizing: border-box;">要同落后的社会生产之间的矛盾”的基</span><span style="box-sizing: border-box;">础上，对于规范城乡发展秩序、保护生</span><span style="box-sizing: border-box;">态环境及确保自然资源可持续发展等起</span><span style="box-sizing: border-box;">到了积极的作用。目前，我国社会的主</span><span style="box-sizing: border-box;">要矛盾已经转化为“人民日益增长的美</span><span style="box-sizing: border-box;">好生活需要和不平衡、不充分的发展之</span><span style="box-sizing: border-box;">间的矛盾”，主要矛盾的变化对自然资</span><span style="box-sizing: border-box;">源管理工作提出了新要求。为适应转型</span><span style="box-sizing: border-box;">发展的需要，践行生态文明，国务院将</span><span style="box-sizing: border-box;">原国土等8个部、委、局的规划编制和</span><span style="box-sizing: border-box;">资源管理职责进行整合，统一行使所有</span><span style="box-sizing: border-box;">国土空间用途管制和生态保护修复职责。</span><span style="box-sizing: border-box;">但是，整合并不意味着消失，相应的政</span><span style="box-sizing: border-box;">策性空间管理制度依然存在，且仍有国</span><span style="box-sizing: border-box;">家公园、生态环境保护等部分职责需要</span><span style="box-sizing: border-box;">跨部门协调。因此，对这些空间管理制</span><span style="box-sizing: border-box;">度的逻辑关系进行整合仍是空间管制工</span><span style="box-sizing: border-box;">作的核心问题。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">此外，这些制度多数都是建立在特<span style="box-sizing: border-box;">定资源管控的逻辑上，具有要素管控的</span><span style="box-sizing: border-box;">“垂直传导”特点，体现了“条块分割”</span><span style="box-sizing: border-box;">的空间治理手段。因此，通过适当整合，</span><span style="box-sizing: border-box;">可有效加强自中央到地方的垂直管理体</span><span style="box-sizing: border-box;">系、提高国家空间治理能力，符合国土</span><span style="box-sizing: border-box;">空间规划改革的根本逻辑。但在新的国</span><span style="box-sizing: border-box;">土空间规划治理体系下，“三区三线”</span><span style="box-sizing: border-box;">的管控仍需依赖于既有的规划管控制度。</span><span style="box-sizing: border-box;">这些空间性规划管控制度在今后一段时期</span><span style="box-sizing: border-box;">内被整合后，仍将继续发挥作用，故建立</span><span style="box-sizing: border-box;">口径一致、权责统一的规划管理制度体系，</span><span style="box-sizing: border-box;">是促进“三区三线”管理的重要途径。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="padding: 2px;display: inline-block;background-color: rgb(156, 94, 21);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(33, 71, 215);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（二）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">建立与事权一致的“三区三线”分层、分级管控体系</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">目前，国家、省、市、县、乡镇五<span style="box-sizing: border-box;">级，国土空间总体规划、专项规划、详</span><span style="box-sizing: border-box;">细规划三类国土空间规划体系已经确立。</span><span style="box-sizing: border-box;">在空间规划改革中，对各级政府事权边</span><span style="box-sizing: border-box;">界进行适当的界定，建立基于事权的空</span><span style="box-sizing: border-box;">间规划管理体系已经形成共识。遵循“管</span><span style="box-sizing: border-box;">什么，批什么”的行政原则，梳理现有</span><span style="box-sizing: border-box;">各类空间性管控制度中自中央到地方的</span><span style="box-sizing: border-box;">各类管控要素的管控权责尤为重要，通</span><span style="box-sizing: border-box;">过整合相关法规、规章、技术规范等制</span><span style="box-sizing: border-box;">度性文件中各类与“三区三线”直接关</span><span style="box-sizing: border-box;">联的导控要素，从结构系统、指标分解、</span><span style="box-sizing: border-box;">坐标管控等维度建立与行政管理权责一</span><span style="box-sizing: border-box;">致的分级管控体系，是“三区三线”划</span><span style="box-sizing: border-box;">定中的重要参考依据。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">从纵向上看，在国家层面注重对“三<span style="box-sizing: border-box;">线”的底线约束、指标统筹等宏观的政</span><span style="box-sizing: border-box;">策调控；在省级层面侧重对区域指标的</span><span style="box-sizing: border-box;">统筹、省域整体结构性布局和管理制度</span><span style="box-sizing: border-box;">的建设；市、县作为国土空间规划体系</span><span style="box-sizing: border-box;">的基础单元及地方规划治理的基本行政</span><span style="box-sizing: border-box;">单元，既要充分贯彻落实国家、省级空</span><span style="box-sizing: border-box;">间规划的战略意图和管控目标，又要协</span><span style="box-sizing: border-box;">调详细规划治理，平衡发展与保护的关</span><span style="box-sizing: border-box;">系，是自然资源资产监管权责最为统一</span><span style="box-sizing: border-box;">的单位，是优化“三区三线”布局、落</span><span style="box-sizing: border-box;">实空间管控的关键。故市、县层面的“三</span><span style="box-sizing: border-box;">区三线”管控应侧重各类控制线的空间</span><span style="box-sizing: border-box;">坐标和落地实施，强化与自然资源资产</span><span style="box-sizing: border-box;">离任审计、干部考核机制的关联性；乡、</span><span style="box-sizing: border-box;">镇级国土空间规划注重对自上而下约束</span><span style="box-sizing: border-box;">机制的空间落实。在城镇开发边界内，</span><span style="box-sizing: border-box;">重点落实“三区三线”在详细规划图斑</span><span style="box-sizing: border-box;">和建设管理上的要求；在城镇开发边界</span><span style="box-sizing: border-box;">外，重点落实生态保护红线、永久基本</span><span style="box-sizing: border-box;">农田的地块坐标，明确各类生态空间、</span><span style="box-sizing: border-box;">农业空间的功能用途、设施和项目准入</span><span style="box-sizing: border-box;">机制。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">总之，通过对自上而下的“三区三线”<span style="box-sizing: border-box;">相关制度的梳理，明确谁来划定、谁来</span><span style="box-sizing: border-box;">管理维护及谁来监督的问题( 表1，表2)。</span></p><p style="text-indent: 0em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="font-size: 14px;line-height: 1;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">表1 基于各级事权的生态空间管控权责一览</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="0.9942063" data-w="863" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mjaDNhpicCraQtgH95z0hUPqHwqAfzfp8iakDyTmzoxLFbYRd7ypRA6LWpxPMV9w2JYnfEDuTibokYtQ/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="font-size: 14px;line-height: 1;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">表2 基于各级事权的农业、城镇、海洋空间管控权责一览</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="0.9597633" data-w="845" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mjaDNhpicCraQtgH95z0hUPqAtrPrLmDfE5iaNYBRuiaMZs3eTV858V6M46RRQOXd9X1XmxZQKEkiby1w/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="padding: 2px;display: inline-block;background-color: rgb(156, 94, 21);box-sizing: border-box;"><section style="padding: 0px 8px;margin-right: 5px;display: inline-block;background-color: rgb(33, 71, 215);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（三）</p></section><section style="padding: 0px 5px;display: inline-block;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">基于审批、实施与监督，完善规划编制体系</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">2019年5月，中共中央、国务院发<span style="box-sizing: border-box;">布《关于建立国土空间规划体系并监督</span><span style="box-sizing: border-box;">实施的若干意见》( 以下简称《若干意</span><span style="box-sizing: border-box;">见》)，明确国土空间规划体系包括规划</span><span style="box-sizing: border-box;">编制审批体系、实施监督体系、法规政</span><span style="box-sizing: border-box;">策体系及技术标准体系4 个运行体系。</span><span style="box-sizing: border-box;">就“三区三线”涉及的内容而言，五级</span><span style="box-sizing: border-box;">国土空间总体规划均强调“三线”的自</span><span style="box-sizing: border-box;">上而下管控、传导的逻辑，是战略性总</span><span style="box-sizing: border-box;">纲，体现国家意志，落实国家战略。三</span><span style="box-sizing: border-box;">类体现综合、专业、实施操作层面的分</span><span style="box-sizing: border-box;">层覆盖逻辑，强调规划治理与“三区三线”</span><span style="box-sizing: border-box;">的协调性、实施性。在五级三类的规划</span><span style="text-indent: 2em;box-sizing: border-box;">编制体系中，应基于规划的审批、实施</span><span style="text-indent: 2em;box-sizing: border-box;">与监督机制，协调城镇开发边界划定与</span><span style="text-indent: 2em;box-sizing: border-box;">规划编制体系的逻辑关系，强化“三线”</span><span style="text-indent: 2em;box-sizing: border-box;">划定中的留白，完善规划编制体系。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 40px;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(33, 71, 215);border-right-color: rgb(33, 71, 215);border-bottom-color: rgb(33, 71, 215);border-left-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="padding-left: 8px;padding-right: 8px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">1.<span style="box-sizing: border-box;">协调城镇开发边界划定与详细</span><span style="box-sizing: border-box;">规划编制体系的逻辑关系</span></p></section><section style="width: 40px;text-align: right;margin-left: auto;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(33, 71, 215);border-right-color: rgb(33, 71, 215);border-bottom-color: rgb(33, 71, 215);border-left-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">从完善规划编制、审批、实施与监<span style="box-sizing: border-box;">督体系的角度而言，“三区三线”的划</span><span style="box-sizing: border-box;">定必须逐级明确具体的控制内容，特别</span><span style="box-sizing: border-box;">是详细规划阶段，应建立在地块属性的</span><span style="box-sizing: border-box;">基础上，落实“三区三线”的坐标。这</span><span style="box-sizing: border-box;">就需要明确“三区三线”与行政区划的</span><span style="box-sizing: border-box;">关系，特别是妥善处理城镇开发边界内</span><span style="box-sizing: border-box;">外详细规划(含村庄规划) 的全覆盖与行</span><span style="box-sizing: border-box;">政区划的口径差异至关重要。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">因此，明确城镇开发边界的内涵就<span style="box-sizing: border-box;">十分关键。根据自然资源部2019年试行</span><span style="box-sizing: border-box;">的《城镇开发边界划定技术指南( 征求意</span><span style="box-sizing: border-box;">见稿)》：“城镇开发边界市国土空间规</span><span style="box-sizing: border-box;">划划定的，一定时期内指导和约束城镇</span><span style="box-sizing: border-box;">发展，在其区域内可以进行城镇集中开</span><span style="box-sizing: border-box;">发建设，重点完善城镇功能的区域边界。”</span><span style="box-sizing: border-box;">城镇开发边界内可以分为城镇集中建设</span><span style="box-sizing: border-box;">区、城镇弹性发展区和特别用途区，可</span><span style="box-sizing: border-box;">以包括零星的生态保护红线和永久基本</span><span style="box-sizing: border-box;">农田，而生态保护红线、永久基本农田</span><span style="box-sizing: border-box;">内则不布局城镇开发边界。但是，城镇</span><span style="box-sizing: border-box;">开发边界和城镇空间的关系并不清楚，</span><span style="box-sizing: border-box;">与行政区划的关系也亟待明确。从国内</span><span style="box-sizing: border-box;">试点城市编制的规划成果看，城镇开发</span><span style="box-sizing: border-box;">边界与城镇空间往往是同一范围，是以</span><span style="box-sizing: border-box;">具体用地图斑为口径划定的管控范围，</span><span style="box-sizing: border-box;">淡化了城镇空间的概念。从行政区划的</span><span style="box-sizing: border-box;">视角看，城镇空间应以乡、镇、街道为</span><span style="box-sizing: border-box;">单位划定，对应城镇、乡村居民点的划</span><span style="box-sizing: border-box;">分原则；城镇开发边界则应以社区、村</span><span style="box-sizing: border-box;">的行政边界为单位进行划定，除集中建</span><span style="box-sizing: border-box;">设区外，还预留一定的城镇弹性发展区</span><span style="box-sizing: border-box;">和特别用途区(图1)。</span></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="0.5537037" data-w="1080" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mjaDNhpicCraQtgH95z0hUPqgLuEX20zzNxSrXLTLkib2kH5z5LOoWuicLaicKT4HPH0488ic1mDmuATHw/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="line-height: 1;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">图1“三区三线”空间关系图</span></p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="font-size: 14px;box-sizing: border-box;">资料来源：笔者结合《城镇开发边界划定技术指南( 征求意见稿)》绘制。</span></p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">首先，国土空间规划均是以市县、<span style="box-sizing: border-box;">乡镇、村的行政区为基础进行覆盖的，</span><span style="box-sizing: border-box;">规划的编制应与具体的行政区划结合，</span><span style="box-sizing: border-box;">从而确保人口、指标、社会经济数据和</span><span style="box-sizing: border-box;">行政管理权责的一致性。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">其次，按照目前我国的行政区划，市、<span style="box-sizing: border-box;">区、街道、镇等建制属于以非农人口为</span><span style="box-sizing: border-box;">特征的城市型居民点，乡、村是以农业</span><span style="box-sizing: border-box;">人口为主的居民点。因而，镇、街道界</span><span style="box-sizing: border-box;">内的全部建设用地、非建设用地宜按照</span><span style="box-sizing: border-box;">《若干意见》的要求，以行政村为最小</span><span style="box-sizing: border-box;">单位划入城镇开发边界，编制详细规划；</span><span style="box-sizing: border-box;">城镇开发边界外以社区、行政村为单位，</span><span style="box-sizing: border-box;">编制村庄规划( 详细规划)，实现乡、村</span><span style="box-sizing: border-box;">行政区划内村庄规划全部覆盖。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">再次，由于建设用地分布与耕地、<span style="box-sizing: border-box;">林地的边界多存在彼此咬合的交错区域，</span><span style="box-sizing: border-box;">而具体地块的功能用途是明确的，城镇</span><span style="box-sizing: border-box;">开发边界与行政区划的边界无法完全重</span><span style="box-sizing: border-box;">合，城镇边缘地带的社区、村一级行政</span><span style="box-sizing: border-box;">边界内可能会出现一部分编制详细规划、</span><span style="box-sizing: border-box;">另一部分编制村庄规划的情况，宜采用</span><span style="box-sizing: border-box;">一本规划、两个部分，分别编制文本和</span><span style="box-sizing: border-box;">图则的方式进行规划覆盖。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">最后，水域、区域交通设施等跨行<span style="box-sizing: border-box;">政边界的线形用地，可参考城镇开发边</span><span style="box-sizing: border-box;">界的划定结果，界内通过详细规划控制，</span><span style="box-sizing: border-box;">界外部分通过村庄规划落实(图2，图3)。</span></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="1.2421442" data-w="541" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mjaDNhpicCraQtgH95z0hUPq5MT6BraGd9cOkJjcb0hkmokibcPbuHlrUJpP50hZicwZ4wQlqJonUH6w/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="font-size: 14px;line-height: 1;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">图2 基于行政区划的“三区三线”空间关系图</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="1.2153285" data-w="548" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mjaDNhpicCraQtgH95z0hUPq4l7uBfrdlm6HSsNAfp0E3C3LLGAmkuvMpibX8OibSRhZGYiaicQJuQgDKQ/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="font-size: 14px;line-height: 1;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">图3 详细规划覆盖示意图</p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="box-sizing: border-box;">总之，详细规划、村庄规划( 也可</span><span style="box-sizing: border-box;">作为详细规划)依赖于城镇开发边界的界</span><span style="box-sizing: border-box;">定，需要与具体的行政区划相结合，相</span><span style="box-sizing: border-box;">关的管理办法、技术管理规定应对其具</span><span style="box-sizing: border-box;">体的编制技术指标和管控方式进行明确，</span><span style="box-sizing: border-box;">特别是确保建设用地管控制度的一致性、</span><span style="box-sizing: border-box;">空间治理的公平性等问题。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 40px;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(33, 71, 215);border-right-color: rgb(33, 71, 215);border-bottom-color: rgb(33, 71, 215);border-left-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="padding-left: 8px;padding-right: 8px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">2.强化“三线”划定中的留白</p></section><section style="width: 40px;text-align: right;margin-left: auto;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(33, 71, 215);border-right-color: rgb(33, 71, 215);border-bottom-color: rgb(33, 71, 215);border-left-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">本轮国土空间总体规划的规划期限<span style="box-sizing: border-box;">普遍到2035年，规划需在市场经济条件</span><span style="box-sizing: border-box;">下，对未来15 年的城乡人口、社会、经</span><span style="box-sizing: border-box;">济、文化等事业做出全面的预测和空间</span><span style="box-sizing: border-box;">上的综合部署。但是，市场的不确定性</span><span style="box-sizing: border-box;">决定了这种预测的局限性，对多变量复</span><span style="box-sizing: border-box;">杂巨系统的预测本身就只能做到战略方</span><span style="box-sizing: border-box;">向上的把控。在严控永久基本农田、生</span><span style="box-sizing: border-box;">态保护红线的基础上划定城镇开发边界，</span><span style="box-sizing: border-box;">应强化留白的价值，规划应立足长远，</span><span style="box-sizing: border-box;">正确看待城乡经济发展的不确定性，做</span><span style="box-sizing: border-box;">好战略留白，为城市未来发展预留弹性</span><span style="box-sizing: border-box;">空间。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">城镇开发边界内，基于空间预判划<span style="box-sizing: border-box;">定的城镇开发边界与市场主体选择的矛</span><span style="box-sizing: border-box;">盾仍然存在，一味地强调控制线的刚性</span><span style="box-sizing: border-box;">管控并无实际意义，重点仍在于约束机</span><span style="box-sizing: border-box;">制和管理规则的制定，通过制度约束，</span><span style="box-sizing: border-box;">妥善处理城镇开发边界内的刚性管控边</span><span style="box-sizing: border-box;">界与战略留白。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">城镇开发边界外，城镇边缘区、远<span style="box-sizing: border-box;">郊乡村与城市边缘区内部不均衡问题，</span><span style="box-sizing: border-box;">以及远郊乡村对区域交通、物流、网络</span><span style="box-sizing: border-box;">的依赖和生态、农业空间发展的不充分</span><span style="box-sizing: border-box;">等问题，共同造成了其发展的滞后性、</span><span style="box-sizing: border-box;">不确定性，需建立相应的留白管理机制。</span><span style="box-sizing: border-box;">对于生态、农业空间而言，建立“详细规</span><span style="box-sizing: border-box;">划+规划许可”和“约束指标+分区准入”</span><span style="box-sizing: border-box;">相结合的用途管制制度，客观上也要求改</span><span style="box-sizing: border-box;">变以往静态的、空间性的规划管理模式，</span><span style="box-sizing: border-box;">转变为政策性、通则性的制度管理模式，</span><span style="box-sizing: border-box;">为地方管理和经济活力预留空间。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">总之，生态文明体制下的规划管控<span style="box-sizing: border-box;">逻辑是建立在城乡发展与生态保护平衡</span><span style="box-sizing: border-box;">基础上的规划治理，在规划管控体系的</span><span style="box-sizing: border-box;">建构中，必须尊重科学、尊重规律，本</span><span style="box-sizing: border-box;">着对历史、对人民高度负责的态度，实</span><span style="box-sizing: border-box;">事求是地划定“三区三线”，做好战略</span><span style="box-sizing: border-box;">性留白。</span></p></section></section></section></section></section><section style="margin: 0.5em 0px;text-align: center;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="0.3692308" data-w="65" src="http://mmbiz.qpic.cn/mmbiz_gif/ibWCnRAEsMdMqxtHuIGiansGjGuJYHs6VeicJ09g5J3ecO56JIk4iaYzV53MzsLaOgkicNrAtLbCsTSk3iazibEo9gSiaQ/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="height: 2em;box-sizing: border-box;"><section style="display: inline-block;margin: 0px 15%;width: 70%;height: 2em;background-color: rgb(33, 71, 215);border-bottom-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="line-height: 1;background-color: rgba(255, 255, 255, 0.2);padding: 0.5em 0px;text-align: center;color: rgb(255, 255, 240);font-size: 21px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">四   结语</strong></p></section></section></section><section style="margin-top: -1.6em;height: 2em;clear: both;box-sizing: border-box;"><section style="width: 25%;height: 0px;float: left;border-top: 1em solid rgb(33, 71, 215);border-bottom: 1em solid rgb(33, 71, 215);border-left: 1em solid transparent !important;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 25%;height: 0px;float: right;border-top: 1em solid rgb(33, 71, 215);border-bottom: 1em solid rgb(33, 71, 215);border-right: 1em solid transparent !important;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="border-width: 1px;border-style: dashed;border-color: black;padding: 3px;box-sizing: border-box;"><section style="border-color: rgb(33, 71, 215);border-width: 1px;border-style: solid;padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">生态文明体制下“三区三线”管控<span style="box-sizing: border-box;">体系的建构，应重点建立口径一致、权</span><span style="box-sizing: border-box;">责统一的规划管理制度体系，建立与事</span><span style="box-sizing: border-box;">权一致的“三区三线”分层、分级管控</span><span style="box-sizing: border-box;">体系，基于审批、实施与监督，完善规</span><span style="box-sizing: border-box;">划编制体系。首先，对现有的各类空间</span><span style="box-sizing: border-box;">性规划管控制度的逻辑关系进行适当的</span><span style="box-sizing: border-box;">整合，使其在今后一段时期内继续发挥</span><span style="box-sizing: border-box;">作用。其次，建立口径一致、权责统一</span><span style="box-sizing: border-box;">的规划管理制度体系，在梳理自上而下</span><span style="box-sizing: border-box;">的“三区三线”相关制度的基础上，明</span><span style="box-sizing: border-box;">确谁来划定、谁来管理维护及谁来监督</span><span style="box-sizing: border-box;">的问题，促进“三区三线”管理效率的</span><span style="box-sizing: border-box;">提升。最后，详细规划阶段“三区三线”</span><span style="box-sizing: border-box;">的划定，必须明确具体的地块功能和坐</span><span style="box-sizing: border-box;">标，完善规划编制体系与规划审批、实</span><span style="box-sizing: border-box;">施与监督体系；明确城镇开发边界、生</span><span style="box-sizing: border-box;">态保护红线及永久基本农田与行政区划</span><span style="box-sizing: border-box;">的关系，特别是妥善处理城镇开发边界</span><span style="box-sizing: border-box;">内外详细规划(含村庄规划) 的全覆盖与</span><span style="box-sizing: border-box;">行政区划的口径差异；同时，尊重科学、</span><span style="box-sizing: border-box;">尊重规律，强化“三线”划定中的留白。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="box-sizing: border-box;">尽管本文对“三区三线”划定中的</span><span style="box-sizing: border-box;">技术逻辑与制度逻辑进行了全面的探讨，</span><span style="box-sizing: border-box;">试图建立生态文明体制下关注自然和人</span><span style="box-sizing: border-box;">文、生产、生活和生态、国土权益平衡</span><span style="box-sizing: border-box;">基础上的“三区三线”划定逻辑及管控</span><span style="box-sizing: border-box;">体系。这对避免国土空间规划“穿新鞋，</span><span style="box-sizing: border-box;">走老路”具有一定的参考意义。但是，</span><span style="box-sizing: border-box;">新的国土空间规划体系下，有关技术体</span><span style="box-sizing: border-box;">系、法律法规体系、监督实施体系及规</span><span style="box-sizing: border-box;">划编制体系之间的逻辑关系是个庞大的</span><span style="box-sizing: border-box;">复杂系统。这些体系之间的逻辑关系仍</span><span style="box-sizing: border-box;">需开展广泛而深入的研究。</span></p></section></section></section></section><section style="margin: 0.5em 0px;text-align: center;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="0.3692308" data-w="65" src="http://mmbiz.qpic.cn/mmbiz_gif/ibWCnRAEsMdMqxtHuIGiansGjGuJYHs6VeicJ09g5J3ecO56JIk4iaYzV53MzsLaOgkicNrAtLbCsTSk3iazibEo9gSiaQ/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 10px 0% 20px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;padding: 15px;border-width: 1px;border-radius: 5px;border-style: solid;border-color: rgb(160, 160, 160);width: 90%;box-sizing: border-box;"><section style="font-size: 15px;color: rgb(110, 110, 110);box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">来源：2020年09期<span style="letter-spacing: 0px;line-height: 1.6;box-sizing: border-box;">《规划师》</span><span style="letter-spacing: 0px;line-height: 1.6;box-sizing: border-box;">杂志</span></p></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="border-top: 1px dashed rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="font-size: 15px;color: rgb(110, 110, 110);box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">新媒体编辑：刘晓莹</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">审读：王青<br style="box-sizing: border-box;"  /></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">终审：杨一虹</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 0px;box-sizing: border-box;" powered-by="gulangu"><section style="padding: 0px 1.5em;margin-bottom: -35px;box-sizing: border-box;"><section style="padding: 10px;width: 100%;display: inline-block;background-color: rgb(33, 71, 215);box-sizing: border-box;"><section style="text-align: center;color: rgb(255, 255, 255);font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">文章全文详见《规划师》2020年09期</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">《</strong>生态文明体制下“三区三线”管控体系建构<strong style="letter-spacing: 0px;box-sizing: border-box;">》</strong></p></section></section></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(33, 71, 215);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="margin: 0.5em 0px;text-align: center;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="0.3692308" data-w="65" src="http://mmbiz.qpic.cn/mmbiz_gif/ibWCnRAEsMdMqxtHuIGiansGjGuJYHs6VeicJ09g5J3ecO56JIk4iaYzV53MzsLaOgkicNrAtLbCsTSk3iazibEo9gSiaQ/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: bottom;width: 100%;transform: rotate(0.1deg);-webkit-transform: rotate(0.1deg);-moz-transform: rotate(0.1deg);-o-transform: rotate(0.1deg);box-sizing: border-box;"><section style="width: 0px;float: left;border-left: 0.8em solid rgb(33, 71, 215);border-top: 0.8em solid rgb(33, 71, 215);border-right: 0.8em solid transparent !important;border-bottom: 0.8em solid transparent !important;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 0px;float: right;border-top: 0.8em solid rgb(33, 71, 215);border-right: 0.8em solid rgb(33, 71, 215);border-left: 0.8em solid transparent !important;border-bottom: 0.8em solid transparent !important;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="margin: -1.6em 0px;border-width: 3px;border-style: solid;border-color: rgb(33, 71, 215);padding: 10px 15px;box-sizing: border-box;"><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="1.2962963" data-w="1080" src="http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0mjSwkhLkJTBiaH4JD00InUqT6SKaD3LN8QNnuo47KsMwyU2jSYY44hib3D9uly3t4KfLDZZngL9xTWg/640?wx_fmt=jpeg" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="jpeg"  /></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.8654867" data-w="565" src="http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0miaXDVNEcsBAB0R2CceQZRImuYxhtQOeOty1hFywzSAgYyGqzYdlFDY6apjiakibF8OtyDj1Qquzrjgw/640?wx_fmt=jpeg" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="jpeg"  /></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.8518519" data-w="837" src="http://mmbiz.qpic.cn/mmbiz_jpg/j8bTq15u0mj5UIUiaCYnr2Hk0StZjGgfyH7uDH8UGiaWhyiamicFUVxw1AgugSCcxdWsyQzWqrI0hiaHEKEM5yicOUVQ/640?wx_fmt=jpeg" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="jpeg"  /></section></section></section><section style="display: inline-block;vertical-align: bottom;width: 100%;box-sizing: border-box;"><section style="width: 0px;float: left;border-left: 0.8em solid rgb(33, 71, 215);border-bottom: 0.8em solid rgb(33, 71, 215);border-top: 0.8em solid transparent !important;border-right: 0.8em solid transparent !important;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 0px;float: right;border-right: 0.8em solid rgb(33, 71, 215);border-bottom: 0.8em solid rgb(33, 71, 215);border-top: 0.8em solid transparent !important;border-left: 0.8em solid transparent !important;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section>
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