国匠城工作台

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<section style="box-sizing: border-box; background-color: rgb(255, 255, 255);"><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px; overflow: hidden;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section class="" style="display: inline-block; vertical-align: top; width: 4em; height: 4em; border-radius: 50%; box-sizing: border-box; background-image: url(http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaFlvxaVDk4iab7FSVe6CKLxNQZxu3esM9hhwX0MHicMwRkAsMQ6mfSMx7JGyCIGs8zEtdWHpU5WGSg/0?wx_fmt=png); background-size: cover; background-position: 50% 50%; background-repeat: no-repeat;"><section class="" style="width: 100%; height: 100%; overflow: hidden; box-sizing: border-box;"> <img class="" style="width: 100%; height: 100%; opacity: 0; box-sizing: border-box; vertical-align: middle;" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaFlvxaVDk4iab7FSVe6CKLxNQZxu3esM9hhwX0MHicMwRkAsMQ6mfSMx7JGyCIGs8zEtdWHpU5WGSg/0?wx_fmt=png" data-ratio="0.9375" data-w="64"  /></section></section><section style="width: 100%; margin-left: 1.2em; margin-top: -1.2em; box-sizing: border-box;"><section style="float: left; white-space: nowrap; overflow: hidden; display: inline-block; vertical-align: middle; height: 2em; margin-left: 1em; border-bottom-left-radius: 1em; border-left-width: 1px; border-left-style: solid; border-left-color: rgb(249, 110, 87); border-bottom-width: 1px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); max-width: 85% !important; box-sizing: border-box;"><section class="" style="margin-left: 1.5em; line-height: 1.5; padding-right: 0.5em; font-size: 18px; color: rgb(33, 71, 215); box-sizing: border-box;"><section style="box-sizing: border-box;">点击蓝字快速关注规划师杂志</section></section></section><section style="float: left; width: 5%; margin-left: -1px; box-sizing: border-box;"><section style="width: 6px; height: 6px; margin-top: 1.82em; border-radius: 100%; box-sizing: border-box; background-color: rgb(249, 110, 87);"></section></section><section style="clear: both; box-sizing: border-box;"></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="display: inline-block; width: 100%; border: 1px solid rgb(249, 110, 87); padding: 10px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(39, 8, 8); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">城市空间增长管理一直是城市规划工作关注的核心课题。城市开发边界经历了从国外城市起源、国内学界引进研究<span style="line-height: 1.45; box-sizing: border-box;">的过程，目前进入到全国试点推广的阶段，并被纳入中央和国务院的有关政策文件中，正式上升到国家政策层面。城市开发边</span><span style="line-height: 1.45; box-sizing: border-box;">界作为城市空间治理的有效方法和手段，被寄予了厚望。</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">作者武汉市规划研究院副院长</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">胡飞，</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">武汉市规划研究院</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">何灵聪</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">，武汉市规划研究院</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">杨昔在《规划师》2016年第6期撰文，</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">武汉城市开发边界划定在“规土合一”的基础上，采取开发边界、城</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">市周边永久基本农田和基本生态控制线“三线统筹”划定的方式，形成了开发边界方案。同时，按照“划管结合”的思路，提</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">出了由城市开发边界、生态红线构成的“两线三区”分区分类管控的政策措施。</span></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px; text-align: center; line-height: 1;  box-sizing: border-box; "><section class="" style="width: 0px; display: inline-block; border-top-width: 1.2em; border-top-style: solid; border-top-color: rgb(249, 110, 87); border-left-width: 0.7em !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 0.7em !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px; text-align: center;  box-sizing: border-box; "><section class="" style="display: inline-block; vertical-align: top; box-sizing: border-box;"><section style="text-align: left; margin-bottom: -2.5em; box-sizing: border-box;"><section style="display: inline-block; vertical-align: top; border-color: rgb(249, 110, 87); box-sizing: border-box;"><section style="width: 2.5em; height: 2.5em; border-left-width: 6px; border-left-style: solid; border-left-color: rgb(249, 110, 87); border-top-width: 6px; border-top-style: solid; border-top-color: rgb(249, 110, 87); box-sizing: border-box;"></section><section style="width: 0px; border-left-width: 3px; border-left-style: solid; border-left-color: rgb(249, 110, 87); border-top-width: 3px; border-top-style: solid; border-top-color: rgb(249, 110, 87); border-bottom-width: 3px !important; border-bottom-style: solid !important; border-bottom-color: transparent !important; border-right-width: 3px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section><section style="width: 0px; display: inline-block; vertical-align: top; border-left-width: 3px; border-left-style: solid; border-left-color: rgb(249, 110, 87); border-top-width: 3px; border-top-style: solid; border-top-color: rgb(249, 110, 87); border-bottom-width: 3px !important; border-bottom-style: solid !important; border-bottom-color: transparent !important; border-right-width: 3px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section><section class="" style="display: inline-block; vertical-align: top; width: 100%; padding: 0px 10px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="padding: 3px 5px; font-size: 18px; color: rgb(227, 43, 107); box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">当前城市开发边界划定的难点</strong></section></section></section></section></section><section style="width: 100%; text-align: right; margin-top: -2.5em; box-sizing: border-box;"><section style="width: 0px; display: inline-block; vertical-align: bottom; border-right-width: 3px; border-right-style: solid; border-right-color: rgb(249, 110, 87); border-bottom-width: 3px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); border-top-width: 3px !important; border-top-style: solid !important; border-top-color: transparent !important; border-left-width: 3px !important; border-left-style: solid !important; border-left-color: transparent !important; box-sizing: border-box;"></section><section style="display: inline-block; vertical-align: bottom; box-sizing: border-box;"><section style="width: 0px; float: right; border-right-width: 3px; border-right-style: solid; border-right-color: rgb(249, 110, 87); border-bottom-width: 3px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); border-top-width: 3px !important; border-top-style: solid !important; border-top-color: transparent !important; border-left-width: 3px !important; border-left-style: solid !important; border-left-color: transparent !important; box-sizing: border-box;"></section><section style="clear: both; box-sizing: border-box;"></section><section style="width: 2.5em; height: 2.5em; border-right-width: 6px; border-right-style: solid; border-right-color: rgb(249, 110, 87); border-bottom-width: 6px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); box-sizing: border-box;"></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 10px 0px; text-align: center;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section style="width: 0px; border-bottom-width: 0.8em; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); margin: auto; border-left-width: 0.8em !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 0.8em !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section class="" style="border-radius: 0.5em; border: 0.14em solid rgb(249, 110, 87); padding: 10px; display: inline-block; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: left; font-size: 16px; line-height: 1.6; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;"><span style="color: rgb(249, 110, 87); box-sizing: border-box;">1.“两规”对开发边界的概念理解<span style="line-height: 1.4; box-sizing: border-box;">有分歧</span></span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.4; box-sizing: border-box;">对城市开发边界的准确定义，国内</span><span style="line-height: 1.4; box-sizing: border-box;">尚未形成统一认识。就“两规”已有的</span><span style="line-height: 1.4; box-sizing: border-box;">技术基础而言，土规倾向于将城市开发</span><span style="line-height: 1.4; box-sizing: border-box;">边界定义为允许建设区和有条件建设区</span><span style="line-height: 1.4; box-sizing: border-box;">(扩展边界)的分界线。有条件建设区是</span><span style="line-height: 1.4; box-sizing: border-box;">在允许建设区之外划定的未来城市发展</span><span style="line-height: 1.4; box-sizing: border-box;">可能拓展的区域，通过一定的审批程序</span><span style="line-height: 1.4; box-sizing: border-box;">可以进行城市建设，通俗地讲，就是有</span><span style="line-height: 1.4; box-sizing: border-box;">空间但没有土规指标的区域，因此土规</span><span style="line-height: 1.4; box-sizing: border-box;">的城市开发边界除了涵盖允许建设区外，</span><span style="line-height: 1.4; box-sizing: border-box;">还需要在有条件建设区内划定。城规则</span><span style="line-height: 1.4; box-sizing: border-box;">倾向于将城市开发边界定义为城市建设</span><span style="line-height: 1.4; box-sizing: border-box;">用地与非建设用地的分界线</span><span style="line-height: 1.4; box-sizing: border-box;">或城市的</span><span style="line-height: 1.4; box-sizing: border-box;">预期扩展边界</span><span style="line-height: 1.4; box-sizing: border-box;">，即规划期内城镇建设</span><span style="line-height: 1.4; box-sizing: border-box;">用地的边界加一定量的弹性规模，弹性</span><span style="line-height: 1.4; box-sizing: border-box;">规模难以量化设定，且并未落实到空间</span><span style="line-height: 1.4; box-sizing: border-box;">上。“两规”对开发边界概念的分歧将</span><span style="line-height: 1.4; box-sizing: border-box;">造成衔接上的技术障碍。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="color: rgb(249, 110, 87); box-sizing: border-box;">2.与“两规”现有的边界关系需要<span style="line-height: 1.4; box-sizing: border-box;">梳理整合</span></span></section><section style="text-indent: 2em; box-sizing: border-box;">用边界来管控空间并不是一个全新<span style="line-height: 1.4; box-sizing: border-box;">的技术手段，在土规和城规的编制技术</span><span style="line-height: 1.4; box-sizing: border-box;">中均早已采用。土规采取划定规模边界、</span><span style="line-height: 1.4; box-sizing: border-box;">扩展边界与禁建边界的方式，形成允许</span><span style="line-height: 1.4; box-sizing: border-box;">建设区、有条件建设区、限制建设区和</span><span style="line-height: 1.4; box-sizing: border-box;">禁止建设区，构成“三界四区”的空间</span><span style="line-height: 1.4; box-sizing: border-box;">管制体系。城规要求中心城区划定禁建</span><span style="line-height: 1.4; box-sizing: border-box;">区、限建区、适建区和已建区，这与土</span><span style="line-height: 1.4; box-sizing: border-box;">规的“三界四区”可以做到充分衔接；</span><span style="line-height: 1.4; box-sizing: border-box;">此外，还要求划定中心城区、城市规划</span><span style="line-height: 1.4; box-sizing: border-box;">区等的边界范围。杨秋惠系统梳理了城</span><span style="line-height: 1.4; box-sizing: border-box;">市开发边界与土规、城规的各类边界的</span><span style="line-height: 1.4; box-sizing: border-box;">关系</span><span style="line-height: 1.4; box-sizing: border-box;">，但没有一条现有的界线可以替</span><span style="line-height: 1.4; box-sizing: border-box;">代城市开发边界的作用。如果要建立城</span><span style="line-height: 1.4; box-sizing: border-box;">市开发边界的空间管控技术，则需要整</span><span style="line-height: 1.4; box-sizing: border-box;">合现有的空间管控界线关系，特别是要</span><span style="line-height: 1.4; box-sizing: border-box;">进一步研究中心城区、城市规划区这类</span><span style="line-height: 1.4; box-sizing: border-box;">与开发边界功能相近的界线是否还有必</span><span style="line-height: 1.4; box-sizing: border-box;">要保留的技术问题。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="color: rgb(249, 110, 87); box-sizing: border-box;">3.“两规”的规划体系缺乏支撑</span></section><section style="text-indent: 2em; box-sizing: border-box;">目前，城市开发边界是在“两规”<span style="line-height: 1.4; box-sizing: border-box;">现有编制技术中植入的“补丁”。业界</span><span style="line-height: 1.4; box-sizing: border-box;">一致认为，划定城市开发边界是“两规”</span><span style="line-height: 1.4; box-sizing: border-box;">在总规层面的一项工作，但如何在“两规”</span><span style="line-height: 1.4; box-sizing: border-box;">规划体系中起到承上启下的作用还需要</span><span style="line-height: 1.4; box-sizing: border-box;">进一步研究。城市开发边界在国家和省</span><span style="line-height: 1.4; box-sizing: border-box;">级层面的国土空间规划、国家和省级层</span><span style="line-height: 1.4; box-sizing: border-box;">的城镇体系规划等上位规划中如何体</span><span style="line-height: 1.4; box-sizing: border-box;">现，又如何在土规的区、乡级规划和城</span><span style="line-height: 1.4; box-sizing: border-box;">规的分区规划、控规中层层分解落实，</span><span style="line-height: 1.4; box-sizing: border-box;">均需要进一步在“两规”的规划体系上</span><span style="line-height: 1.4; box-sizing: border-box;">寻求可操作的途径，并在实践中不断完</span><span style="line-height: 1.4; box-sizing: border-box;">善。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="color: rgb(249, 110, 87); box-sizing: border-box;">4.对开发边界的管控政策不明确</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.4; box-sizing: border-box;">尽管现有的规划技术可以支撑划出</span><span style="line-height: 1.4; box-sizing: border-box;">一条相对客观的城市开发边界，但是划</span><span style="line-height: 1.4; box-sizing: border-box;">线工作本身受主观因素影响较大，不同</span><span style="line-height: 1.4; box-sizing: border-box;">的管理政策会导致城市开发边界划定的</span><span style="line-height: 1.4; box-sizing: border-box;">结果不一样。此外，城市开发边界划定后，</span><span style="line-height: 1.4; box-sizing: border-box;">涉及到边界的审批、维护与调整等的管</span><span style="line-height: 1.4; box-sizing: border-box;">理权限问题，管控城市开发边界外的合</span><span style="line-height: 1.4; box-sizing: border-box;">理建设的政策都需要明确。如果不能形</span><span style="line-height: 1.4; box-sizing: border-box;">成一套严格的空间管理政策体系，城市</span><span style="line-height: 1.4; box-sizing: border-box;">开发边界的权威性就会受到挑战，同时，</span><span style="line-height: 1.4; box-sizing: border-box;">城市开发边界将达不到预期的效果。</span></section><section style="box-sizing: border-box;"><br style="box-sizing: border-box;"  /></section></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center;  box-sizing: border-box; "><section class="" style="display: inline-block; vertical-align: top; padding: 0.6em 0px; box-sizing: border-box;"><section style="display: inline-block; vertical-align: bottom; width: 1.8em; height: 1.8em; margin-bottom: -0.6em; border-left-width: 2px; border-left-style: dotted; border-left-color: rgb(249, 110, 87); border-top-width: 2px; border-top-style: dotted; border-top-color: rgb(249, 110, 87); box-sizing: border-box;"></section><section class="" style="display: inline-block; vertical-align: top; border: 2px solid rgb(249, 110, 87); border-radius: 5px; font-size: 19.2px; padding: 0px 5px; color: rgb(255, 255, 255); box-sizing: border-box; max-width: 86% !important; background-color: rgb(249, 110, 87);"><section style="box-sizing: border-box;">武汉城市开发边界划定实践</section></section><section style="display: inline-block; vertical-align: bottom; width: 1.8em; height: 1.8em; margin-bottom: -0.6em; border-right-width: 2px; border-right-style: dotted; border-right-color: rgb(249, 110, 87); border-top-width: 2px; border-top-style: dotted; border-top-color: rgb(249, 110, 87); box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.55em 0px;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section style="box-sizing: border-box;"><section style="display: inline-block; vertical-align: top; width: 2em; height: 2.16em; border-bottom-left-radius: 0.4em; border-top-left-radius: 0.4em; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section class="" style="line-height: 2.16em; width: 2em; height: 1em; padding-left: 0.5em; color: rgb(255, 255, 255); box-sizing: border-box;"><section style="box-sizing: border-box;">一</section></section></section><section style="display: inline-block; vertical-align: top; width: 0px; border-left-width: 0.5em; border-left-style: solid; border-left-color: rgb(249, 110, 87); border-top-width: 1.08em !important; border-top-style: solid !important; border-top-color: transparent !important; border-bottom-width: 1.08em !important; border-bottom-style: solid !important; border-bottom-color: transparent !important; box-sizing: border-box;"></section></section><section style="display: block; float: left; padding: 0.2em 0.3em; margin: -2.11111em 0px 0.1em 1em; border: 1px solid rgb(249, 110, 87); border-radius: 0.4em; box-sizing: border-box;"><section class="" style="padding: 0px 5px 0px 1.5em; margin-left: 2px; float: left; display: inline-block; vertical-align: top; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">“规土合一”和“三线统筹”的划定方式</strong></section></section></section><section style="clear: both; box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="box-sizing: border-box; background-color: rgb(254, 255, 255);"><section class="" style="border-left-color: rgb(249, 110, 87); border-right-color: rgb(249, 110, 87); border-left-style: dotted; border-left-width: 6px; border-right-style: dotted; border-right-width: 6px; padding: 10px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; box-sizing: border-box; line-height: 1;  "><section class="" style="display: inline-block; border-bottom-width: 2px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); padding: 0px 2px 3px; box-sizing: border-box;"><section class="" style="display: inline-block; margin: 0px; padding: 0.3em 0.4em; min-width: 1.8em; min-height: 1.6em; line-height: 1; text-align: center; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section style="box-sizing: border-box;">1</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; line-height: 1.4; color: rgb(249, 110, 87); font-size: 16px; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">促进“规土合一”，<span style="line-height: 1.27; box-sizing: border-box;">形成统一划线的基础平台</span></section></span> </section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;"><br style="box-sizing: border-box;"  /></section><section style="text-indent: 2em; box-sizing: border-box;">（1）统一基础数据，对接用地分类标<span style="line-height: 1.45; box-sizing: border-box;">准。</span><span style="line-height: 1.45; box-sizing: border-box;">将国土和规划部门的各类现状调查</span><span style="line-height: 1.45; box-sizing: border-box;">与审批信息进行系统性整合及认定，建</span><span style="line-height: 1.45; box-sizing: border-box;">立“两规”统一的规划编制和管理现状</span><span style="line-height: 1.45; box-sizing: border-box;">信息平台，形成一套统一的基础数据库。</span><span style="line-height: 1.45; box-sizing: border-box;">考虑到国土与规划行业分别采用不同的</span><span style="line-height: 1.45; box-sizing: border-box;">用地分类标准，按照数据管理标准化的</span><span style="line-height: 1.45; box-sizing: border-box;">要求，武汉制定了《城乡用地分类与土</span><span style="line-height: 1.45; box-sizing: border-box;">地规划分类的对接指南》，以确保地类</span><span style="line-height: 1.45; box-sizing: border-box;">统计结果的协调一致。</span></section><section style="text-indent: 2em; box-sizing: border-box;">（2）在空间布局上，以乡镇总规为载<span style="line-height: 1.45; box-sizing: border-box;">体，统一划定城镇扩展边界和规模边界。</span><span style="line-height: 1.45; box-sizing: border-box;">武汉将镇总规与乡级土规合并编制，</span><span style="line-height: 1.45; box-sizing: border-box;">统一划定了城镇建设用地扩展边界。在</span><span style="line-height: 1.45; box-sizing: border-box;">扩展边界内，按照土规确定的城镇建设</span><span style="line-height: 1.45; box-sizing: border-box;">用地指标，划定城镇建设用地规模边界。</span><span style="line-height: 1.45; box-sizing: border-box;">扩展边界和规模边界的统一划定，既保</span><span style="line-height: 1.45; box-sizing: border-box;">证了建设用地总量控制的刚性，又给予</span><span style="line-height: 1.45; box-sizing: border-box;">了城镇空间拓展的适度弹性，实现了“两</span><span style="line-height: 1.45; box-sizing: border-box;">规”在建设用地规划导控上的统一。</span></section><section style="text-indent: 2em; box-sizing: border-box;">（3）在划定过程中，开展“两规”空<span style="line-height: 1.45; box-sizing: border-box;">间布局比对。</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">通过土规与都市发展区内城市集中</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">建设区的比对，主要比对土规口径的允</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">许建设区、有条件建设区和城规口径的</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">集中建设区布局是否一致。分析表明，</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">城规布局的城市建设用地中，大部分用</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">地是土规口径的允许建设区、有条件建</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">设区，吻合率达 90.3%( 图 2)。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaJq8m3ln5jTxkAHrKMhC7yoDn7F3nXgdso5rOHiaNOVJkR7ZglnnzNB6ngOByeph1QPpjVb3MBt9A/0?wx_fmt=png" data-ratio="1.116504854368932" data-w="412"  /></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; box-sizing: border-box; line-height: 1;  "><section class="" style="display: inline-block; border-bottom-width: 2px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); padding: 0px 2px 3px; box-sizing: border-box;"><section class="" style="display: inline-block; margin: 0px; padding: 0.3em 0.4em; min-width: 1.8em; min-height: 1.6em; line-height: 1; text-align: center; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section style="box-sizing: border-box;">2</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; color: rgb(249, 110, 87); line-height: 1.4; font-size: 16px; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">突出“两规”的共同目标，明确划定方法和原则</section></span> </section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">首先，明确划线的基本范围。国土</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">和规划部门要求划定的城市开发边界是</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">“中心城区规划建设用地，以及中心城</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">区周边与中心城区连绵发展的下辖城镇</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的规划建设用地”。对武汉而言，在两</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">个总规中界定了3261km2</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的都市发展</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">区范围，基本覆盖了“中心城区”及“周</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">边与中心城区连绵发展的下辖城镇的规</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">划建设用地”范围。因此，武汉城市开</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">发边界划定的重点在都市发展区以内。</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">都市发展区外围的中小城镇，根据武汉</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">市规划管理的实际需要也一并划定开发</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">边界，作为武汉市国土和规划部门的管</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">理依据。</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">因此，武汉形成了“1+N”全市域</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">覆盖的开发边界界线。其中，“1”是以</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">都市发展区内的城市开发边界划定为主；</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">“N”是外围农业生态区的N个集中建</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">设区，包括乡镇驻地(镇区)及个别生态</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">区内的重大项目边界。</span><br style="box-sizing: border-box;"  /></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">其次，制定系统划定的思路和方法。</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">武汉积累了基本生态控制线划定和管理</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的经验，因此本次开发边界的划定始终</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">坚持“划管结合”的理念，提出了“全</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">域划、双界线、分级管、分类控”的总</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">体思路：在市域范围内划定一条界线作</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">为城市开发边界，为城市发展预留一定</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的空间，边界内为城市集中建设区；在</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">城市开发边界以外还需划定一条刚性界</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">线作为生态保护红线，为生态底线区，</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">尽最大程度保护城市的核心生态资源；</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">生态红线与城市开发边界之间构成弹性</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">发展区；在划线工作的基础上，进一步</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">明确“两线三区”的分区管控要求。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">最后，按照“两规”的共同目标，</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">确定划定原则。武汉划定城市开发边界</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">要在“两规”的共同目标下进行，并遵</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">循“生态优先、优化布局、总量不变、</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">区内平衡”4个原则，即优先划定各类</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">需要重点保护的资源要素，优先确定不</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">能开发建设的空间，作为城市生态红线；</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">不突破城市总规确定的城市空间框架，</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">进一步固化城市形态，优化空间布局，</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">促进城市有机生长；建设用地总量、耕</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">地保有量和基本农田保护面积等约束性</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">指标不突破法定规划目标；在划线过程</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">中，若涉及到土规方面的局部调整，以</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">区为单位进行土规布局优化和土地指标</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">平衡。这四个原则既涵盖了城规的空间</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">目标，又兼顾了土规的指标要求。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; box-sizing: border-box; line-height: 1;  "><section class="" style="display: inline-block; border-bottom-width: 2px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); padding: 0px 2px 3px; box-sizing: border-box;"><section class="" style="display: inline-block; margin: 0px; padding: 0.3em 0.4em; min-width: 1.8em; min-height: 1.6em; line-height: 1; text-align: center; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section style="box-sizing: border-box;">3</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; color: rgb(249, 110, 87); line-height: 1.4; font-size: 16px; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">“三线”统筹协调，共同落实城市<span style="line-height: 1.27; box-sizing: border-box;">空间格局</span></section></span> </section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">在“三线”关系上，城市周边永久<span style="line-height: 1.45; box-sizing: border-box;">基本农田与基本生态控制线应充分融合，</span><span style="line-height: 1.45; box-sizing: border-box;">在城市开发边界外围共同构成实体线，</span><span style="line-height: 1.45; box-sizing: border-box;">支撑城市开发边界落地。在城市周边划</span><span style="line-height: 1.45; box-sizing: border-box;">定永久基本农田是通过基本农田的刚性</span><span style="line-height: 1.45; box-sizing: border-box;">约束，进一步促进城市空间形态的优化，</span><span style="line-height: 1.45; box-sizing: border-box;">起到阻止城市“摊大饼”式扩张的作用；</span><span style="line-height: 1.45; box-sizing: border-box;">划定基本生态控制线是为维护城市生态</span><span style="line-height: 1.45; box-sizing: border-box;">安全，实现可持续发展；划定城市开发</span><span style="line-height: 1.45; box-sizing: border-box;">边界是为了防止城市无序蔓延，推动城</span><span style="line-height: 1.45; box-sizing: border-box;">市由外延扩张向内涵升转变。因此，</span><span style="line-height: 1.45; box-sizing: border-box;">“三线”需要统筹划定，才能成合力，</span><span style="line-height: 1.45; box-sizing: border-box;">共同保障城市空间格局的形成 ( 图3)。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaJq8m3ln5jTxkAHrKMhC7yNVROsV7df8H3oOAvNJM3tH9IvK9MuSoQmsYOGuhxGaIkgwDuyibI1xg/0?wx_fmt=png" data-ratio="1.1564102564102565" data-w="390"  /></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">(1) 优先划定基本生态控制线。</section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.45; box-sizing: border-box;">首先，开展生态环境容量分析。采</span><span style="line-height: 1.45; box-sizing: border-box;">用GIS进行用地适宜性评价、生态承载</span><span style="line-height: 1.45; box-sizing: border-box;">力评价，采用碳氧平衡法、建设用地需</span><span style="line-height: 1.45; box-sizing: border-box;">求法和逾渗理论等方法，结合武汉山水</span><span style="line-height: 1.45; box-sizing: border-box;">生态资源的实际特色，确定全市生态用</span><span style="line-height: 1.45; box-sizing: border-box;">地总量。研究认为，武汉市域生态用地</span><span style="line-height: 1.45; box-sizing: border-box;">总量应保持在 80% 左右，都市发展区内</span><span style="line-height: 1.45; box-sizing: border-box;">生态用地总量则宜保持在65%～70%</span><span style="line-height: 1.45; box-sizing: border-box;">的比重 ( 图 4)。</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">其次，划定全域基本生态控制线。</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">逐项对山体、水体和优质耕地等12类生</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">态要素资源进行甄别，结合发改、林业、</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">农业与水利等其他部门的空间管控诉求，</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">综合《中华人民共和国水污染防治法》、</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">《中华人民共和国自然保护区条例》、</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">《风景名胜区条例》及《武汉市湿地自</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">然保护区条例》和武汉市湖泊保护规划</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">等国家、省市的十余项法律法规与技术</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">规范的空间管制要求，通过基于17项因</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">子的生态适宜性分析，确定各因子权重，</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">采取“分层叠加”的方法划定基本生态</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">控制线 ( 图 5)。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaJq8m3ln5jTxkAHrKMhC7y6tSWBIujQZIHfTUTNibFWHoqkx6exWP4myq62uaf8HUAaqtnU1MTLhA/0?wx_fmt=png" data-ratio="1.2408256880733946" data-w="436"  /></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaJq8m3ln5jTxkAHrKMhC7yu5qBcd05LGQzEvBY1pTQW9Zzt9yqeOMxu2yZjeKrSWTzc09kz1PofA/0?wx_fmt=png" data-ratio="0.7805343511450382" data-w="524"  /></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;"><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">武汉生态底线区包括三大类资源：</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">一是核心生态要素资源，包括饮用水水</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">源一级、二级保护区，风景名胜区、森</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">林公园及郊野公园的核心区，自然保护</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">区；河流、湖泊、水库、湿地、重要的</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">明渠及其保护范围；坡度大于16°的</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">山体及其保护范围；地下遗址保护区</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">等。二是重要的农业生产区，将转化为</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">永久基本农田的集中区域；三是城市形</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">态优化需要的生态框架结构性要素，包</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">括城市总规确定的“两环六楔”生态框</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">架，由“六楔”外延而成的生态联系界</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">面和由风道、蓝绿生态网络串联而成的</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">生态廊道等。全市基本生态控制线面积</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">共为6391km2</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">，占市域土地总面积的</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">75%。其中，都市发展区内划定生态保</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">护范围的面积为1814 km2</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">，占都市发</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">展区总面积的 55%( 图 6)。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaJq8m3ln5jTxkAHrKMhC7yAkBLTUHHP9sHa2fM0W7GRkN6mibzRxmTjia7nxKKYWmyGRyd9micKYTzw/0?wx_fmt=png" data-ratio="1.2603938730853392" data-w="457"  /></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">(2) 避让城市周边基本农田。</section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.45; box-sizing: border-box;">城市开发边界与城市周边永久基本</span><span style="line-height: 1.45; box-sizing: border-box;">农田划定工作同步开展，实现双重刚性，</span><span style="line-height: 1.45; box-sizing: border-box;">固化边界。在城市开发边界与生态红线</span><span style="line-height: 1.45; box-sizing: border-box;">叠合区，未来城市开发边界不再向外拓</span><span style="line-height: 1.45; box-sizing: border-box;">展，就紧邻开发边界之外布局永久基本</span><span style="line-height: 1.45; box-sizing: border-box;">农田，利用永久基本农田的刚性进一步</span><span style="line-height: 1.45; box-sizing: border-box;">固化城市开发边界的形态。</span><span style="line-height: 1.45; box-sizing: border-box;">在城市长远发展必须控制的生态廊</span><span style="line-height: 1.45; box-sizing: border-box;">道和交通干道沿线，优先划定永久基本</span><span style="line-height: 1.45; box-sizing: border-box;">农田，发挥开发边界和基本农田对城市</span><span style="line-height: 1.45; box-sizing: border-box;">空间结构的双重约束作用，限制城市的</span><span style="line-height: 1.45; box-sizing: border-box;">无序蔓延。对于禁止建设区、生态底线</span><span style="line-height: 1.45; box-sizing: border-box;">区及城市“绿心”等范围内符合基本农</span><span style="line-height: 1.45; box-sizing: border-box;">田条件的耕地，实行“应划尽划”；对</span><span style="line-height: 1.45; box-sizing: border-box;">于限制建设区、有条件建设区内的耕地，</span><span style="line-height: 1.45; box-sizing: border-box;">本着实事求是的原则，将其中符合条件</span><span style="line-height: 1.45; box-sizing: border-box;">的耕地划为永久基本农田。</span></section><section style="text-indent: 2em; box-sizing: border-box;">(3)确保总量不变、布局优化、兼顾<span style="line-height: 1.45; box-sizing: border-box;">远景。</span></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.45; box-sizing: border-box;">城市开发边界的划定坚持建设用地</span><span style="line-height: 1.45; box-sizing: border-box;">总量不突破土规确定的控制目标，不突</span><span style="line-height: 1.45; box-sizing: border-box;">破城规确定的城市空间框架，立足于空</span><span style="line-height: 1.45; box-sizing: border-box;">间布局优化，进一步固化“1+6”的城</span><span style="line-height: 1.45; box-sizing: border-box;">市空间形态，促进城市有机生长。划定</span><span style="line-height: 1.45; box-sizing: border-box;">结果为武汉2020年城市开发边界范围</span><span style="line-height: 1.45; box-sizing: border-box;">为1491km2</span><span style="line-height: 1.45; box-sizing: border-box;">，其中城镇可建设区域约</span><span style="line-height: 1.45; box-sizing: border-box;">为1351km2</span><span style="line-height: 1.45; box-sizing: border-box;">。在 2020 年城市开发边界</span><span style="line-height: 1.45; box-sizing: border-box;">之外，展望2030年城市远景发展格局，</span><span style="line-height: 1.45; box-sizing: border-box;">将城市规划确定的远期发展用地或备用</span><span style="line-height: 1.45; box-sizing: border-box;">地划为 2030 年城市开发边界 ( 图 7)。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaJq8m3ln5jTxkAHrKMhC7yT9LqlicmIVPY1qZibuaF5FS6PXvYWjgmgr8WNriaibuuVvrSzpDKwFkkgQ/0?wx_fmt=png" data-ratio="0.8301526717557252" data-w="524"  /></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.55em 0px;  box-sizing: border-box; "><section class="" style="display: inline-block; box-sizing: border-box;"><section style="box-sizing: border-box;"><section style="display: inline-block; vertical-align: top; width: 2em; height: 2.16em; border-bottom-left-radius: 0.4em; border-top-left-radius: 0.4em; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section class="" style="line-height: 2.16em; width: 2em; height: 1em; padding-left: 0.5em; color: rgb(255, 255, 255); box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">二</strong></section></section></section><section style="display: inline-block; vertical-align: top; width: 0px; border-left-width: 0.5em; border-left-style: solid; border-left-color: rgb(249, 110, 87); border-top-width: 1.08em !important; border-top-style: solid !important; border-top-color: transparent !important; border-bottom-width: 1.08em !important; border-bottom-style: solid !important; border-bottom-color: transparent !important; box-sizing: border-box;"></section></section><section style="display: block; float: left; padding: 0.2em 0.3em; margin: -2.11111em 0px 0.1em 1em; border: 1px solid rgb(249, 110, 87); border-radius: 0.4em; box-sizing: border-box;"><section class="" style="padding: 0px 5px 0px 1.5em; margin-left: 2px; float: left; display: inline-block; vertical-align: top; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">“划管结合”的分区分类管控措施</strong></section></section></section><section style="clear: both; box-sizing: border-box;"></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><section class="" style="box-sizing: border-box; background-color: rgb(254, 255, 255);"><section class="" style="border-left-color: rgb(249, 110, 87); border-right-color: rgb(249, 110, 87); border-left-style: dotted; border-left-width: 6px; border-right-style: dotted; border-right-width: 6px; padding: 10px; box-sizing: border-box;"><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; box-sizing: border-box; line-height: 1;  "><section class="" style="display: inline-block; border-bottom-width: 2px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); padding: 0px 2px 3px; box-sizing: border-box;"><section class="" style="display: inline-block; margin: 0px; padding: 0.3em 0.4em; min-width: 1.8em; min-height: 1.6em; line-height: 1; text-align: center; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section style="box-sizing: border-box;">1</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; color: rgb(249, 110, 87); line-height: 1.4; font-size: 16px; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">边界内外的建设政策</section></span> </section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">城市开发边界不是简单的建设区与<span style="line-height: 1.45; box-sizing: border-box;">非建区的分界线，不能作为城乡分界线，</span><span style="line-height: 1.45; box-sizing: border-box;">更不能成为缩小城乡差别、实现城乡公</span><span style="line-height: 1.45; box-sizing: border-box;">共服务设施均等化目标的障碍，否则城</span><span style="line-height: 1.45; box-sizing: border-box;">市开发边界的作用将“弊大于利”</span><span style="line-height: 1.45; box-sizing: border-box;">。因</span><span style="line-height: 1.45; box-sizing: border-box;">此，必须保障城市开发边界外的经济发</span><span style="line-height: 1.45; box-sizing: border-box;">展和合理建设需求。这需要分别发挥城</span><span style="line-height: 1.45; box-sizing: border-box;">规、土规互补的管理作用，制定分类管</span><span style="line-height: 1.45; box-sizing: border-box;">控政策。</span></section><section style="text-indent: 2em; box-sizing: border-box;">城市开发边界内也有小型湖泊水体、<span style="line-height: 1.45; box-sizing: border-box;">大型公园绿地等重要的绿色生态空间和</span><span style="line-height: 1.45; box-sizing: border-box;">农业生产空间，同样需要严格保护。开</span><span style="line-height: 1.45; box-sizing: border-box;">发边界内以城规的用地性质管理为主，</span><span style="line-height: 1.45; box-sizing: border-box;">湖泊及周边绿地、山体绿地等统一按城</span><span style="line-height: 1.45; box-sizing: border-box;">乡规划用地的“非建设用地”(E类)和</span><span style="line-height: 1.45; box-sizing: border-box;">城市建设用地的“绿地与广场用地”(G</span><span style="line-height: 1.45; box-sizing: border-box;">类 ) 进行管理。</span></section><section style="text-indent: 2em; box-sizing: border-box;">城市开发边界外实施项目准入管理<span style="line-height: 1.45; box-sizing: border-box;">制度。生态底线区执行最严格的保护制</span><span style="line-height: 1.45; box-sizing: border-box;">度，可以准入4类项目：①具有系统影响、</span><span style="line-height: 1.45; box-sizing: border-box;">确需建设的道路交通设施和市政公用设</span><span style="line-height: 1.45; box-sizing: border-box;">施；②生态型农业设施；③公园绿地及</span><span style="line-height: 1.45; box-sizing: border-box;">必要的风景游赏设施；④确需建设的军</span><span style="line-height: 1.45; box-sizing: border-box;">事、保密等特殊用途设施。生态发展区</span><span style="line-height: 1.45; box-sizing: border-box;">即城市开发边界与生态底线之间的弹性</span><span style="line-height: 1.45; box-sizing: border-box;">空间，除可准入生态底线区的4类项目</span><span style="line-height: 1.45; box-sizing: border-box;">外，还可以准入5类项目：①风景名胜区、</span><span style="line-height: 1.45; box-sizing: border-box;">湿地公园、森林公园和郊野公园的配套</span><span style="line-height: 1.45; box-sizing: border-box;">旅游接待、服务设施；②生态型休闲度</span><span style="line-height: 1.45; box-sizing: border-box;">假项目；③必要的农业生产及农村生活、</span><span style="line-height: 1.45; box-sizing: border-box;">服务设施；④必要的公益性服务设施；</span><span style="line-height: 1.45; box-sizing: border-box;">⑤其他经规划行政主管部门会同相关部</span><span style="line-height: 1.45; box-sizing: border-box;">门论证，与生态保护不相抵触、资源消</span><span style="line-height: 1.45; box-sizing: border-box;">耗低、环境影响小，经市人民政府批准</span><span style="line-height: 1.45; box-sizing: border-box;">同意建设的项目，可以有限制地进行农</span><span style="line-height: 1.45; box-sizing: border-box;">村居民点还建。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; box-sizing: border-box; line-height: 1;  "><section class="" style="display: inline-block; border-bottom-width: 2px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); padding: 0px 2px 3px; box-sizing: border-box;"><section class="" style="display: inline-block; margin: 0px; padding: 0.3em 0.4em; min-width: 1.8em; min-height: 1.6em; line-height: 1; text-align: center; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section style="box-sizing: border-box;">2</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; color: rgb(249, 110, 87); line-height: 1.4; font-size: 16px; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">刚性与弹性</section></span> </section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">武汉是处于快速发展阶段的城市，<span style="line-height: 1.45; box-sizing: border-box;">市域山水资源众多，都市发展区内大部</span><span style="line-height: 1.45; box-sizing: border-box;">分的城市建设区域已经拓展到了生态底</span><span style="line-height: 1.45; box-sizing: border-box;">线附近，形成了开发边界与生态底线的</span><span style="line-height: 1.45; box-sizing: border-box;">重叠，成为刚性边界。然而，一些发展</span><span style="line-height: 1.45; box-sizing: border-box;">主轴的拓展仍有较大的空间增长需求和</span><span style="line-height: 1.45; box-sizing: border-box;">未来发展的不确定性，只能根据两个总</span><span style="line-height: 1.45; box-sizing: border-box;">规的规模指标划定阶段性边界，这样就</span><span style="line-height: 1.45; box-sizing: border-box;">形成了一种弹性边界。因此，武汉的开</span><span style="line-height: 1.45; box-sizing: border-box;">发边界在形态上是刚性与弹性并存。</span></section><section style="text-indent: 2em; box-sizing: border-box;">刚性开发边界具有双重属性，边界<span style="line-height: 1.45; box-sizing: border-box;">内是城市集中建设区，边界外是生态底</span><span style="line-height: 1.45; box-sizing: border-box;">线区。刚性开发边界体现了城市发展的</span><span style="line-height: 1.45; box-sizing: border-box;">终极边界，在空间形态上不得随意修改</span><span style="line-height: 1.45; box-sizing: border-box;">和变形调整。弹性开发边界兼顾了城市</span><span style="line-height: 1.45; box-sizing: border-box;">建设用地增长的可能性和发展的不确定</span><span style="line-height: 1.45; box-sizing: border-box;">性，是不同时期城市空间扩展的动态边</span><span style="line-height: 1.45; box-sizing: border-box;">界，反映城市空间发展的阶段性特征，</span><span style="line-height: 1.45; box-sizing: border-box;">弹性开发边界在适建区、限建区，可以</span><span style="line-height: 1.45; box-sizing: border-box;">根据实际需要在满足土地指标的前提下，</span><span style="line-height: 1.45; box-sizing: border-box;">作适当变形。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; box-sizing: border-box; line-height: 1;  "><section class="" style="display: inline-block; border-bottom-width: 2px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); padding: 0px 2px 3px; box-sizing: border-box;"><section class="" style="display: inline-block; margin: 0px; padding: 0.3em 0.4em; min-width: 1.8em; min-height: 1.6em; line-height: 1; text-align: center; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section style="box-sizing: border-box;">3</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; color: rgb(249, 110, 87); line-height: 1.4; font-size: 16px; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">“漂浮指标”管理</section></span> </section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">土规侧重指标管理，是对全市域范<span style="line-height: 1.45; box-sizing: border-box;">围、城乡建设用地全口径的管控；城规</span><span style="line-height: 1.45; box-sizing: border-box;">侧重于用地管理，重点在城市规划区内，</span><span style="line-height: 1.45; box-sizing: border-box;">对城市规划区外的中小城镇和乡村建设</span><span style="line-height: 1.45; box-sizing: border-box;">则管控不足。因此，可以发挥土规和城</span><span style="line-height: 1.45; box-sizing: border-box;">规的各自优势，对城市开发边界内外进</span><span style="line-height: 1.45; box-sizing: border-box;">行全覆盖管控。“漂浮指标”是武汉提</span><span style="line-height: 1.45; box-sizing: border-box;">出的一项创新做法，采用土规的指标管</span><span style="line-height: 1.45; box-sizing: border-box;">理方式，在一定空间范围内给予适量的</span><span style="line-height: 1.45; box-sizing: border-box;">建设用地指标，这类指标在空间上没有</span><span style="line-height: 1.45; box-sizing: border-box;">具体范围，根据实际建设需要进行机动</span><span style="line-height: 1.45; box-sizing: border-box;">分配。“漂浮指标”只在生态底线区和</span><span style="line-height: 1.45; box-sizing: border-box;">生态发展区(弹性区)内设定，除满足准</span><span style="line-height: 1.45; box-sizing: border-box;">入的项目类型外，还得申请建设用地指</span><span style="line-height: 1.45; box-sizing: border-box;">标。</span></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0.5em 0px; box-sizing: border-box; line-height: 1;  "><section class="" style="display: inline-block; border-bottom-width: 2px; border-bottom-style: solid; border-bottom-color: rgb(249, 110, 87); padding: 0px 2px 3px; box-sizing: border-box;"><section class="" style="display: inline-block; margin: 0px; padding: 0.3em 0.4em; min-width: 1.8em; min-height: 1.6em; line-height: 1; text-align: center; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(249, 110, 87);"><section style="box-sizing: border-box;">4</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; color: rgb(249, 110, 87); line-height: 1.4; font-size: 16px; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;"> 既有项目分类处理</section></span> </section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">对于基本生态控制线内的既有项目，<span style="line-height: 1.45; box-sizing: border-box;">根据“批、征、供、用”情况，分别制</span><span style="line-height: 1.45; box-sizing: border-box;">定保留、整改和外迁3种处置方案。保</span><span style="line-height: 1.45; box-sizing: border-box;">留类为符合准入要求、对生态保护无不</span><span style="line-height: 1.45; box-sizing: border-box;">利影响的项目，按现状、现用途保留使</span><span style="line-height: 1.45; box-sizing: border-box;">用；整改类为符合准入要求、对生态保</span><span style="line-height: 1.45; box-sizing: border-box;">护有不利影响的项目，引导相关权利人</span><span style="line-height: 1.45; box-sizing: border-box;">进行改造和产业转型，逐步转为与生态</span><span style="line-height: 1.45; box-sizing: border-box;">保护不抵触的适宜用途；外迁类为不符</span><span style="line-height: 1.45; box-sizing: border-box;">合准入要求、但已审批尚未开工的项目，</span><span style="line-height: 1.45; box-sizing: border-box;">要通过置换到基本生态控制线外根据规</span><span style="line-height: 1.45; box-sizing: border-box;">划进行建设，或者实行政府土地储备恢</span><span style="line-height: 1.45; box-sizing: border-box;">复生态功能。</span></section></section></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" margin: 0px;  box-sizing: border-box; "><section class="" style="padding: 0px 1.5em; margin-bottom: -35px; box-sizing: border-box;"><section class="" style="padding: 10px; width: 100%; display: inline-block; box-sizing: border-box; background-color: rgb(255, 202, 0);"><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: center; color: rgb(255, 255, 255); font-size: 16px; box-sizing: border-box;"><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">文章全文详见《规划师》2016年6期</strong></section><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">《<span style="line-height: 1.45; box-sizing: border-box;">规土合一、三线统筹、划管结合</span></strong></section><section style="box-sizing: border-box;"><strong style="box-sizing: border-box;">—武汉城市开发边界划定实践》</strong></section></section></section></section></section></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(255, 129, 36);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(255, 129, 36);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(255, 129, 36);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(255, 129, 36);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(255, 129, 36);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(255, 129, 36);"></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaFlvxaVDk4iab7FSVe6CKLxn8FUIvVjv34fVtceCCozia4w0ovHLJAB4MSRK5uafsOJmUXMafo7QaA/0?wx_fmt=jpeg" data-ratio="0.8651079136690647" data-w=""  /></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><section class="" style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><img style="max-width: 100%; box-sizing: border-box; vertical-align: middle;" class="" src="http://img02.store.sogou.com/net/a/05/link?appid=100520091&url=http://mmbiz.qpic.cn/mmbiz/j8bTq15u0miaFlvxaVDk4iab7FSVe6CKLxUXYIqJapEYRKR9afxCDY1hP5PmnXrnxiad9nK5vjzhx5sQIbIjhyWXw/0?wx_fmt=jpeg" data-ratio="0.8507194244604317" data-w=""  /></section></section></section>
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