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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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdlsxvKzn1uU4m8H11DCnKG55G4Yul5j6vLCaPz7gsdjmxFwJ1ELKU7icdg/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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdlsxvKzn1uU4m8H11DCnKG55G4Yul5j6vLCaPz7gsdjmxFwJ1ELKU7icdg/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-bottom-width: 1px; border-bottom-style: solid; border-left-color: rgb(58, 140, 226); border-bottom-color: rgb(58, 140, 226); 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(58, 140, 226);"></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="box-sizing: border-box; background-color: rgb(226, 220, 220);"><section class="" style="border-left-style: dotted; border-left-width: 6px; border-right-style: dotted; border-right-width: 6px; padding: 10px; border-left-color: rgb(58, 140, 226); border-right-color: rgb(58, 140, 226); 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(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">目前，各地多规融合实践方向不一、主体不明，缺乏对各规划各要素间内在联系与融合机理的分析。基于此，作者<span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">长沙市规划信息服务中心</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">曾山山</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">，长沙市规划信息服务中心副主任</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">张鸿辉</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">，长沙市规划信息服务中心</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">崔海波</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">，长沙市规划信息服务中心研究部部长</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">黄军林在《规划师》2016年第6期撰文，</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">文章试</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">图从博弈论视角解析多规融合存在的问题，指出多规融合本质上是以空间资源为纽带的多元利益主体的博弈，其核心问题是空</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">间发展权之争、规划价值之争和权域之争。借鉴博弈论关注个体（局部）理性和互动决策的思维与方法，文章在多规融合的总</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">体思路、融合主体、用地布局差异融合与控制线划定技术重设方面提出了详细的创新性构建方案，以期为破解当前多规融合实</span><span style="text-indent: 2em; line-height: 1.45; box-sizing: border-box;">践过程中出现的难题和争议提供一种新的思路与方法。</span></section></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(58, 140, 226); 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="padding-left: 1em; padding-right: 1em; display: inline-block; box-sizing: border-box;"><span style="display: inline-block; padding: 0.3em 0.5em; border-radius: 0.5em; font-size: 18px; color: rgb(255, 255, 255); box-sizing: border-box; background-color: rgb(58, 140, 226);" class=""><section style="box-sizing: border-box;">博弈论视角下的多规融合</section></span> </section><section class="" style="border: 1px solid rgb(192, 200, 209); margin-top: -1em; padding: 20px 10px 10px; box-sizing: border-box; background-color: rgb(254, 255, 255);"><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; padding: 0px 2px 3px; border-bottom-color: rgb(58, 140, 226); 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; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(58, 140, 226);"><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; font-size: 16px; color: rgb(58, 140, 226); text-align: left; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">相关研究动态</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="text-align: left; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">博弈论(Game Theory)又被称为<span style="line-height: 1.45; box-sizing: border-box;">“对策论”，是应用数学的一个分支，</span><span style="line-height: 1.45; box-sizing: border-box;">主要研究公式化的激励结构间的相互作</span><span style="line-height: 1.45; box-sizing: border-box;">用、冲突与合作。博弈论考虑个体的预</span><span style="line-height: 1.45; box-sizing: border-box;">测行为和实际行为，并研究其优化策略。</span><span style="line-height: 1.45; box-sizing: border-box;">博弈论在经济学、政治科学、军事战略</span><span style="line-height: 1.45; box-sizing: border-box;">问题、进化生物学及当代计算机科学等</span><span style="line-height: 1.45; box-sizing: border-box;">领域都已成为重要的研究和分析工具。</span></section><section style="text-indent: 2em; box-sizing: border-box;">对规划进行管理与实施的过程，实<span style="line-height: 1.45; box-sizing: border-box;">质上是居民、地方政府、开发商等以各</span><span style="line-height: 1.45; box-sizing: border-box;">自的利益诉求为出发点，对城市空间利</span><span style="line-height: 1.45; box-sizing: border-box;">益进行博弈的过程</span><span style="line-height: 1.45; box-sizing: border-box;">。</span><span style="line-height: 1.45; box-sizing: border-box;">近年来，越来越</span><span style="line-height: 1.45; box-sizing: border-box;">多的研究将博弈论作为分析工具，对城</span><span style="line-height: 1.45; box-sizing: border-box;">市规划方面涉及的城市规划认知</span><span style="line-height: 1.45; box-sizing: border-box;">、城</span><span style="line-height: 1.45; box-sizing: border-box;">市更新</span><span style="line-height: 1.45; box-sizing: border-box;">、城市拆迁与旧城改造</span><span style="line-height: 1.45; box-sizing: border-box;">、城</span><span style="line-height: 1.45; box-sizing: border-box;">市空间结构</span><span style="line-height: 1.45; box-sizing: border-box;">、城市公共设施和基</span><span style="line-height: 1.45; box-sizing: border-box;">础设施规划</span><span style="line-height: 1.45; box-sizing: border-box;">、城市规划实施的制度</span><span style="line-height: 1.45; box-sizing: border-box;">设计</span><span style="line-height: 1.45; box-sizing: border-box;">等方面进行了大量的基础性分</span><span style="line-height: 1.45; box-sizing: border-box;">析工作。研究指出，城市规划在强调集</span><span style="line-height: 1.45; box-sizing: border-box;">体理性的同时，也要照顾个体理性的需</span><span style="line-height: 1.45; box-sizing: border-box;">求，这需要在公众利益和个体要求中进</span><span style="line-height: 1.45; box-sizing: border-box;">行博弈</span><span style="line-height: 1.45; box-sizing: border-box;">，故编制城市规划就是设定博</span><span style="line-height: 1.45; box-sizing: border-box;">弈规则</span><span style="line-height: 1.45; box-sizing: border-box;">。在空间规划方面，各类规划</span><span style="line-height: 1.45; box-sizing: border-box;">主管部门围绕土地发展权的空间配置开</span><span style="line-height: 1.45; box-sizing: border-box;">展博弈，通过优化要素位序、界线划定、</span><span style="line-height: 1.45; box-sizing: border-box;">语境对接和创新机制，可推动各类规划</span><span style="line-height: 1.45; box-sizing: border-box;">走向合作</span><span style="line-height: 1.45; box-sizing: border-box;">。由此可见，目前学术界基</span><span style="line-height: 1.45; box-sizing: border-box;">于博弈论的视角对城市规划及空间规划</span><span style="line-height: 1.45; box-sizing: border-box;">的研究已有部分成果，但专门针对多规</span><span style="line-height: 1.45; box-sizing: border-box;">融合的研究较少。从博弈论的视角看待</span><span style="line-height: 1.45; box-sizing: border-box;">多规融合的核心与本质问题，主要涉</span><span style="line-height: 1.45; box-sizing: border-box;">及空间博弈、价值博弈和权域博弈3个</span><span style="line-height: 1.45; box-sizing: border-box;">方面。</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; padding: 0px 2px 3px; border-bottom-color: rgb(58, 140, 226); 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; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(58, 140, 226);"><section style="box-sizing: border-box;">2</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; line-height: 1.4; font-size: 16px; color: rgb(58, 140, 226); word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">空间之争：</section><section style="box-sizing: border-box;">生产、生态、生活<span style="line-height: 1.27; box-sizing: border-box;">空间</span><span style="line-height: 1.27; box-sizing: border-box;">发展权的博弈</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="text-align: left; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">从表面上看，各类空间规划“打架”<span style="line-height: 1.45; box-sizing: border-box;">是因为各类规划的土地利用性质不一，</span><span style="line-height: 1.45; box-sizing: border-box;">但其本质是空间发展权之争(图1)。一</span><span style="line-height: 1.45; box-sizing: border-box;">方面，地方的社会经济发展需要建设用</span><span style="line-height: 1.45; box-sizing: border-box;">地的支持和保障，城市经济社会发展目</span><span style="line-height: 1.45; box-sizing: border-box;">标的实现，需要将不同控制指标落实在</span><span style="line-height: 1.45; box-sizing: border-box;">相应建设用地地块范围内，并预留城市</span><span style="line-height: 1.45; box-sizing: border-box;">发展用地空间；另一方面，为促进社会</span><span style="line-height: 1.45; box-sizing: border-box;">经济的可持续发展，必须保障足够的林</span><span style="line-height: 1.45; box-sizing: border-box;">地、基本农田、水域和草地等空间。因此，</span><span style="line-height: 1.45; box-sizing: border-box;">社会经济发展、城镇建设扩张、产业园</span><span style="line-height: 1.45; box-sizing: border-box;">区扩张、耕地保护、生态保护、自然与</span><span style="line-height: 1.45; box-sizing: border-box;">文化遗产保护之间便上演着此进彼退的</span><span style="line-height: 1.45; box-sizing: border-box;">空间之争。空间资源是唯一的，而生产、</span><span style="line-height: 1.45; box-sizing: border-box;">生态、生活空间发展权都需要得到维护，</span><span style="line-height: 1.45; box-sizing: border-box;">在此过程中，如果没有界定清晰的底线，</span><span style="line-height: 1.45; box-sizing: border-box;">没有共同遵守的包容与合作规则，可持</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">续的空间发展秩序必然难以得到维持。</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">从博弈论的角度看，多规融合应该公平</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">对待各类空间发展权，综合考虑区域乡</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">村、城镇、国土等各类空间内部多尺度</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的空间生长机理、划分与管制要求，以</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">及现行各级规划的行政管辖空间的精度</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">要求，形成具备兼容性的多层级空间分</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">类体系，既保证城乡规划和其他空间规</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">划的对接顺畅，又保障不同层级空间管</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">制的落实</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">。尊重各类空间发展权背后</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的利益代言者，促使多元利益主体之间</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">形成一种良性关系，在国家与地方，上</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">级政府与下级政府，地方政府、潜在土</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">地权利人与现有土地权利人的博弈过程</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">中寻求“最大公约数”。通过个体空间</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">发展权的合作与非合作博弈，达成空间</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的整体理性状态。</span></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; "><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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdlsic9YMRhHMg6Af06OVQMZuqAjcJMJwqZ2S4NcaSEWg3gTZM53fJwbfAg/0?wx_fmt=png" data-ratio="0.4288389513108614" data-w="534"  /></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; padding: 0px 2px 3px; border-bottom-color: rgb(58, 140, 226); 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; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(58, 140, 226);"><section style="box-sizing: border-box;">3</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; line-height: 1.4; font-size: 16px; color: rgb(58, 140, 226); word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">价值之争：</section><section style="box-sizing: border-box;">现实主义与理想主义<span style="line-height: 1.27; box-sizing: border-box;">规划思维的博弈</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="text-align: left; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">我国的空间规划类型按照规划目标<span style="line-height: 1.45; box-sizing: border-box;">价值取向可以分为实施型实用主义规划</span><span style="line-height: 1.45; box-sizing: border-box;">(计划)与终极型理想主义规划。实施型</span><span style="line-height: 1.45; box-sizing: border-box;">实用主义规划以土地利用总体规划为主</span><span style="line-height: 1.45; box-sizing: border-box;">要代表，包括重大项目计划、各类实施</span><span style="line-height: 1.45; box-sizing: border-box;">型专项规划，侧重指标分解、促成项目</span><span style="line-height: 1.45; box-sizing: border-box;">落地，强调规划实施与近期目标，土地</span><span style="line-height: 1.45; box-sizing: border-box;">发展权分配遵循“需求为上”“以供定需”</span><span style="line-height: 1.45; box-sizing: border-box;">的原则，与现状衔接较好。终极型理想</span><span style="line-height: 1.45; box-sizing: border-box;">主义规划以城乡规划为主要代表，包括</span><span style="line-height: 1.45; box-sizing: border-box;">生态红线保护规划等，侧重整体空间的</span><span style="line-height: 1.45; box-sizing: border-box;">合理布局与优化，强调终极蓝图式的理</span><span style="line-height: 1.45; box-sizing: border-box;">想空间远期愿景，往往忽视现状。目标</span><span style="line-height: 1.45; box-sizing: border-box;">价值取向的差异，导致各类规划的内容、</span><span style="line-height: 1.45; box-sizing: border-box;">技术标准和方法、管控方式、实施机制</span><span style="line-height: 1.45; box-sizing: border-box;">存在差异。总体来说，城乡规划是“一</span><span style="line-height: 1.45; box-sizing: border-box;">书三证管建设”、土地利用总体规划是“三</span><span style="line-height: 1.45; box-sizing: border-box;">线两界保资源”、国民经济社会发展规</span><span style="line-height: 1.45; box-sizing: border-box;">划是“整体推进定目标”、主体功能区</span><span style="line-height: 1.45; box-sizing: border-box;">规划是“政策区划管协调”、生态功能</span><span style="line-height: 1.45; box-sizing: border-box;">区划是“功能分区保本底”</span><span style="line-height: 1.45; box-sizing: border-box;">。不能说</span><span style="line-height: 1.45; box-sizing: border-box;">哪一种价值取向正确或不正确，从博弈</span><span style="line-height: 1.45; box-sizing: border-box;">论的角度看，多规融合便是近期目标与</span><span style="line-height: 1.45; box-sizing: border-box;">远景目标、现实制约与理想蓝图的博弈，</span><span style="line-height: 1.45; box-sizing: border-box;">因此融合工作需要对近期与远期、理想</span><span style="line-height: 1.45; box-sizing: border-box;">与现实进行调和。</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(58, 140, 226); 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; border-radius: 80% 100% 90% 20%; color: rgb(255, 255, 240); word-wrap: break-word !important; box-sizing: border-box; background-color: rgb(58, 140, 226);"><section style="box-sizing: border-box;">4</section></section><span style="display: inline-block; margin-left: 0.4em; max-width: 100%; color: rgb(58, 140, 226); line-height: 1.4; font-size: 16px; word-wrap: break-word !important; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">权域之争：</section><section style="box-sizing: border-box;">多规融合背后各级<span style="line-height: 1.27; box-sizing: border-box;">政府及不同部门间</span></section><section style="box-sizing: border-box;"><span style="line-height: 1.27; box-sizing: border-box;">的权益博弈</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="text-align: left; box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">现阶段规划空间冲突，是主管规划<span style="line-height: 1.45; box-sizing: border-box;">的各政府职能部门因信息不对称进行“背</span><span style="line-height: 1.45; box-sizing: border-box;">靠背”规划，通过各部门的理性选择，</span><span style="line-height: 1.45; box-sizing: border-box;">达到在有限的土地空间上的“纳什均衡”。</span><span style="line-height: 1.45; box-sizing: border-box;">与国外空间规划体系不同，我国的体制</span><span style="line-height: 1.45; box-sizing: border-box;">特征和基本国情决定了当前空间规划体</span><span style="line-height: 1.45; box-sizing: border-box;">系构成成分的多元化</span><span style="line-height: 1.45; box-sizing: border-box;">。法律、法规和</span><span style="line-height: 1.45; box-sizing: border-box;">政府文件明确的规划包括城乡规划、土</span><span style="line-height: 1.45; box-sizing: border-box;">地利用总体规划、主体功能区规划和生</span><span style="line-height: 1.45; box-sizing: border-box;">态功能区规划等，分别由住建部、国土部、</span><span style="line-height: 1.45; box-sizing: border-box;">发改委、环保部归口管理，纵向涉及行</span><span style="line-height: 1.45; box-sizing: border-box;">政建制上的国家、省、市(县)、乡(镇)、</span><span style="line-height: 1.45; box-sizing: border-box;">村等多个层级，横向几乎涉及政府的各</span><span style="line-height: 1.45; box-sizing: border-box;">个部门。在同样的土地空间利用上，规</span><span style="line-height: 1.45; box-sizing: border-box;">划的多头垂直管理，导致目前混乱的管</span><span style="line-height: 1.45; box-sizing: border-box;">理格局；在管理体系上，各职能部门均</span><span style="line-height: 1.45; box-sizing: border-box;">受上级部门的业务指导和同级政府的管</span><span style="line-height: 1.45; box-sizing: border-box;">理，导致各规划横向难协调、纵向难衔接，</span><span style="line-height: 1.45; box-sizing: border-box;">对不同内容的强调和控制，容易导致同</span><span style="line-height: 1.45; box-sizing: border-box;">一土地空间的利用方式的重叠和利益诉</span><span style="line-height: 1.45; box-sizing: border-box;">求的冲突，故各部门间、国家与地方不</span><span style="line-height: 1.45; box-sizing: border-box;">可避免地产生利益冲突。为有效行使有</span><span style="line-height: 1.45; box-sizing: border-box;">限空间的话语权，在空间上进行内容管</span><span style="line-height: 1.45; box-sizing: border-box;">理和边界控制成为不同规划共同关注的</span><span style="line-height: 1.45; box-sizing: border-box;">目标及实现各利益主体权益的有效手段。</span><span style="line-height: 1.45; box-sizing: border-box;">各利益主体的权力博弈促使制度与体制</span><span style="line-height: 1.45; box-sizing: border-box;">的创新，以寻求一种权力均衡。因此，</span><span style="line-height: 1.45; box-sizing: border-box;">多规融合配套的制度与体制创新，必须</span><span style="line-height: 1.45; box-sizing: border-box;">从权域博弈出发，进行深入改良设计，</span><span style="line-height: 1.45; box-sizing: border-box;">而非一厢情愿地强制性集权或放权。</span></section><section style="text-indent: 2em; box-sizing: border-box;">由此可见，根据博弈论，多规融合<span style="line-height: 1.45; box-sizing: border-box;">应追求多元主体的利益平衡，在现有法</span><span style="line-height: 1.45; box-sizing: border-box;">理基础、体制框架和规划实施上进行深</span><span style="line-height: 1.45; box-sizing: border-box;">化改革，实现多规融合而非“多规合一”。</span><span style="line-height: 1.45; box-sizing: border-box;">在内容上，政府及相关职能部门应该在</span><span style="line-height: 1.45; box-sizing: border-box;">法律授权框架下依法行政，界定一个主</span><span style="line-height: 1.45; box-sizing: border-box;">体合法、层次合理和内容简要可控的融</span><span style="line-height: 1.45; box-sizing: border-box;">合范围，尽可能体现不同空间利益主体</span><span style="line-height: 1.45; box-sizing: border-box;">的诉求；在技术层面上，应该注重多规</span><span style="line-height: 1.45; box-sizing: border-box;">要素间的内在相互作用关系及可行的包</span><span style="line-height: 1.45; box-sizing: border-box;">容与妥协规则；在制度设计上，必须关</span><span style="line-height: 1.45; box-sizing: border-box;">注个体与局部理性，通过新的权力均衡</span><span style="line-height: 1.45; box-sizing: border-box;">达成整体理性。基于此，本文提出多规</span><span style="line-height: 1.45; box-sizing: border-box;">融合的思路、内容、技术、制度设计等</span><span style="line-height: 1.45; box-sizing: border-box;">以及作为空间规划融合终极状态的市域</span><span style="line-height: 1.45; box-sizing: border-box;">空间规划体系框架。</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;  box-sizing: border-box; "><section class="" style="padding-left: 1em; padding-right: 1em; display: inline-block; box-sizing: border-box;"><span style="display: inline-block; padding: 0.3em 0.5em; box-shadow: rgb(165, 165, 165) 4px 4px 2px; font-size: 18px; color: rgb(255, 255, 255); box-sizing: border-box; background-color: rgb(58, 140, 226);" class=""><section style="box-sizing: border-box;">多规融合总体框架构建</section></span></section><section class="" style="border: 1px solid rgb(204, 204, 204); margin-top: -1em; box-shadow: rgb(165, 165, 165) 4px 4px 2px; padding: 20px 10px 10px; box-sizing: border-box; background-color: rgb(254, 255, 255);"><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; text-align: left; box-sizing: border-box;"><section style="display: inline-block; vertical-align: middle; box-sizing: border-box;"><section style="width: 38px; box-sizing: border-box;"><section style="width: 38px; border-bottom-width: 2px; border-bottom-style: solid; margin: 17px 0px -19px 1px; border-bottom-color: rgb(58, 140, 226); box-sizing: border-box;"></section><section style="margin-left: 5px; width: 30px; height: 36px; box-sizing: border-box;"><section style="margin-left: -1px; box-sizing: border-box;"><section style="width: 0px; box-sizing: border-box;"><section style="border-bottom-width: 10px; border-bottom-style: solid; border-bottom-color: rgb(58, 140, 226); border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section style="border-bottom-width: 10px; border-bottom-style: solid; border-bottom-color: rgb(255, 255, 255); margin-top: -8px; border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section><section style="width: 30px; line-height: 16px; height: 16px; margin: -2px 0px 0px 1px; border-left-width: 2px; border-left-style: solid; border-right-width: 2px; border-right-style: solid; text-align: center; border-left-color: rgb(58, 140, 226); border-right-color: rgb(58, 140, 226); box-sizing: border-box; background-color: rgb(255, 255, 255);" class=""><section style="box-sizing: border-box;">1</section></section><section style="width: 0px; box-sizing: border-box;"><section style="border-top-width: 10px; border-top-style: solid; border-top-color: rgb(58, 140, 226); border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section style="border-top-width: 8px; border-top-style: solid; border-top-color: rgb(255, 255, 255); margin-top: -10px; margin-left: 3px; border-left-width: 13px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 13px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section></section></section></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section style="line-height: 1; font-size: 16px; color: rgb(58, 140, 226); box-sizing: border-box;" class=""><section style="box-sizing: border-box;">总体思路：多层次、多维度博弈</section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: left; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">按照不同尺度、不同维度的博弈规<span style="line-height: 1.45; box-sizing: border-box;">则，坚持“宏微观上下联动、一张蓝图</span><span style="line-height: 1.45; box-sizing: border-box;">绘管控、一套机制保障实施”的原则，</span><span style="line-height: 1.45; box-sizing: border-box;">构建多规融合整体思路(图2)。首先进</span><span style="line-height: 1.45; box-sizing: border-box;">行顶层博弈设计，识别参与博弈的空间</span><span style="line-height: 1.45; box-sizing: border-box;">发展权代表主体，按照互不交叉的原则</span><span style="line-height: 1.45; box-sizing: border-box;">对各空间规划有效的管控内容与权限进</span><span style="line-height: 1.45; box-sizing: border-box;">行整合梳理或者再规划，提出市域层面</span><span style="line-height: 1.45; box-sizing: border-box;">的统一目标、共同纲领、刚性约束指标</span><span style="line-height: 1.45; box-sizing: border-box;">与空间控制线体系，确保多规在宏观战</span><span style="line-height: 1.45; box-sizing: border-box;">略层面具有统一标准。其次，进行微观</span><span style="line-height: 1.45; box-sizing: border-box;">博弈设计，在顶层设计目标的指引下，</span><span style="line-height: 1.45; box-sizing: border-box;">深入剖析各类规划在空间布局上的差异</span><span style="line-height: 1.45; box-sizing: border-box;">原因与实施诉求，制定基于要素间内在</span><span style="line-height: 1.45; box-sizing: border-box;">关联的空间布局冲突识别和融合处理技</span><span style="line-height: 1.45; box-sizing: border-box;">术，协调用地布局冲突并划定控制线，</span><span style="line-height: 1.45; box-sizing: border-box;">实现市域空间规划一张图。最后，进行</span><span style="line-height: 1.45; box-sizing: border-box;">权域博弈，根据博弈论，在关注个体理</span><span style="line-height: 1.45; box-sizing: border-box;">性行为规律的基础上实现集体理性，对</span><span style="line-height: 1.45; box-sizing: border-box;">个体或局部理性行为进行有效干预，提</span><span style="line-height: 1.45; box-sizing: border-box;">出空间规划体系重构及配套的空间规划</span><span style="line-height: 1.45; box-sizing: border-box;">和审批事权划分机制、空间发展权受损</span><span style="line-height: 1.45; box-sizing: border-box;">补偿与差别化考核机制，配套行政审批</span><span style="line-height: 1.45; box-sizing: border-box;">体系改革构想与管理办法等。</span></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; "><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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdlsIazsBE3x2ibS5Uwrce1AuQ844qnhMic05AY0MOtvR1x4sxhwLhicl0ZXg/0?wx_fmt=png" data-ratio="0.8445692883895131" data-w="534"  /></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; text-align: left; box-sizing: border-box;"><section style="display: inline-block; vertical-align: middle; box-sizing: border-box;"><section style="width: 38px; box-sizing: border-box;"><section style="width: 38px; border-bottom-width: 2px; border-bottom-style: solid; margin: 17px 0px -19px 1px; border-bottom-color: rgb(58, 140, 226); box-sizing: border-box;"></section><section style="margin-left: 5px; width: 30px; height: 36px; box-sizing: border-box;"><section style="margin-left: -1px; box-sizing: border-box;"><section style="width: 0px; box-sizing: border-box;"><section style="border-bottom-width: 10px; border-bottom-style: solid; border-bottom-color: rgb(58, 140, 226); border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section style="border-bottom-width: 10px; border-bottom-style: solid; border-bottom-color: rgb(255, 255, 255); margin-top: -8px; border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section><section style="width: 30px; line-height: 16px; height: 16px; margin: -2px 0px 0px 1px; border-left-width: 2px; border-left-style: solid; border-right-width: 2px; border-right-style: solid; text-align: center; border-left-color: rgb(58, 140, 226); border-right-color: rgb(58, 140, 226); box-sizing: border-box; background-color: rgb(255, 255, 255);" class=""><section style="box-sizing: border-box;">2</section></section><section style="width: 0px; box-sizing: border-box;"><section style="border-top-width: 10px; border-top-style: solid; border-top-color: rgb(58, 140, 226); border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section style="border-top-width: 8px; border-top-style: solid; border-top-color: rgb(255, 255, 255); margin-top: -10px; margin-left: 3px; border-left-width: 13px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 13px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section></section></section></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section style="line-height: 1; font-size: 16px; color: rgb(58, 140, 226); box-sizing: border-box;" class=""><section style="box-sizing: border-box;">融合主体：“4+2”博弈局识别</section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: left; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">博弈论指出，事情总是朝着复杂的<span style="line-height: 1.45; box-sizing: border-box;">方向发展，复杂会造成浪费，而效能则</span><span style="line-height: 1.45; box-sizing: border-box;">来自于单纯。因此，多规融合应该在法</span><span style="line-height: 1.45; box-sizing: border-box;">律授权框架下，根据核心目标，界定一</span><span style="line-height: 1.45; box-sizing: border-box;">个主体合法、层次合理和内容简要可控</span><span style="line-height: 1.45; box-sizing: border-box;">的融合范围，尽可能体现不同空间利益</span><span style="line-height: 1.45; box-sizing: border-box;">主体的诉求。</span></section><section style="text-indent: 2em; box-sizing: border-box;">多规融合的宏观目标是达成生产、<span style="line-height: 1.45; box-sizing: border-box;">生活、生态空间的和谐共生与可持续发</span><span style="line-height: 1.45; box-sizing: border-box;">展。其参与博弈局的核心空间发展权主</span><span style="line-height: 1.45; box-sizing: border-box;">要包括城镇发展、项目落地、耕地保护、</span><span style="line-height: 1.45; box-sizing: border-box;">生态环保、产业支撑、交通基础设施支</span><span style="line-height: 1.45; box-sizing: border-box;">撑等话语权。据此，该融合主体可简</span><span style="line-height: 1.45; box-sizing: border-box;">为“4+2”的多规融合主体模式(图3)，</span><span style="line-height: 1.45; box-sizing: border-box;">即融合国民经济和社会发展规划、城市</span><span style="line-height: 1.45; box-sizing: border-box;">控制性详细规划、土地利用总体规划、</span><span style="line-height: 1.45; box-sizing: border-box;">环境保护规划，在空间上落实产业布局</span><span style="line-height: 1.45; box-sizing: border-box;">规划、综合交通规划，并逐步与其他专</span><span style="line-height: 1.45; box-sizing: border-box;">项规划进行衔接，通过构建全市统一的</span><span style="line-height: 1.45; box-sizing: border-box;">控制线体系，确保各类规划在同一空间</span><span style="line-height: 1.45; box-sizing: border-box;">的目标、指标、坐标相一致。同时，为</span><span style="line-height: 1.45; box-sizing: border-box;">避免融合要素过于复杂，在梳理各规划</span><span style="line-height: 1.45; box-sizing: border-box;">主体的法理体系、主要规划目标和管控</span><span style="line-height: 1.45; box-sizing: border-box;">方向的基础上，对“4+2”各规划主体</span><span style="line-height: 1.45; box-sizing: border-box;">的核心融合要素做出明确界定。首先，</span><span style="line-height: 1.45; box-sizing: border-box;">根据法律规定及授权界定权力边界，整</span><span style="line-height: 1.45; box-sizing: border-box;">理权力清单，遵循“法律授权、依法行政、</span><span style="line-height: 1.45; box-sizing: border-box;">法无授权不可为”的原则，将法律授权</span><span style="line-height: 1.45; box-sizing: border-box;">编制的相关规划纳入多规体系之中；其</span><span style="line-height: 1.45; box-sizing: border-box;">次，将其他非法定规划纳入与其内容相</span><span style="line-height: 1.45; box-sizing: border-box;">近的相关法定规划当中，减少各类专业</span><span style="line-height: 1.45; box-sizing: border-box;">规划、专项规划的数量。据此，发改部</span><span style="line-height: 1.45; box-sizing: border-box;">门参与融合的主要要素包括国民经济和</span><span style="line-height: 1.45; box-sizing: border-box;">社会发展规划5年指标、重大项目与民</span><span style="line-height: 1.45; box-sizing: border-box;">生项目计划、产业空间布局；国土部门</span><span style="line-height: 1.45; box-sizing: border-box;">参与融合的主要要素包括土地利用规划</span><span style="line-height: 1.45; box-sizing: border-box;">图、耕地与基本农田布局、项目供地审批、</span><span style="line-height: 1.45; box-sizing: border-box;">土地年度更新等；规划部门参与融合的</span><span style="line-height: 1.45; box-sizing: border-box;">主要要素包括总体规划强制性内容、控</span><span style="line-height: 1.45; box-sizing: border-box;">制性详细规划土地利用布局、市政基础</span><span style="line-height: 1.45; box-sizing: border-box;">设施专项布局、公共服务设施专项布局、</span><span style="line-height: 1.45; box-sizing: border-box;">项目审批等；环保部门参与融合的主要</span><span style="line-height: 1.45; box-sizing: border-box;">要素包括生态一级、二级红线及其主要</span><span style="line-height: 1.45; box-sizing: border-box;">生态功能区边界。</span></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; "><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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdls3ywVjj6SLTKiab1bE405lS5r6vlXhUk4JwdRHqukKUXxSgB7BT0S4ibA/0?wx_fmt=png" data-ratio="0.5224719101123596" data-w="534"  /></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; text-align: left; box-sizing: border-box;"><section style="display: inline-block; vertical-align: middle; box-sizing: border-box;"><section style="width: 38px; box-sizing: border-box;"><section style="width: 38px; border-bottom-width: 2px; border-bottom-style: solid; margin: 17px 0px -19px 1px; border-bottom-color: rgb(58, 140, 226); box-sizing: border-box;"></section><section style="margin-left: 5px; width: 30px; height: 36px; box-sizing: border-box;"><section style="margin-left: -1px; box-sizing: border-box;"><section style="width: 0px; box-sizing: border-box;"><section style="border-bottom-width: 10px; border-bottom-style: solid; border-bottom-color: rgb(58, 140, 226); border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section style="border-bottom-width: 10px; border-bottom-style: solid; border-bottom-color: rgb(255, 255, 255); margin-top: -8px; border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section><section style="width: 30px; line-height: 16px; height: 16px; margin: -2px 0px 0px 1px; border-left-width: 2px; border-left-style: solid; border-right-width: 2px; border-right-style: solid; text-align: center; border-left-color: rgb(58, 140, 226); border-right-color: rgb(58, 140, 226); box-sizing: border-box; background-color: rgb(255, 255, 255);" class=""><section style="box-sizing: border-box;">3</section></section><section style="width: 0px; box-sizing: border-box;"><section style="border-top-width: 10px; border-top-style: solid; border-top-color: rgb(58, 140, 226); border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section style="border-top-width: 8px; border-top-style: solid; border-top-color: rgb(255, 255, 255); margin-top: -10px; margin-left: 3px; border-left-width: 13px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 13px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section></section></section></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section style="line-height: 1.1; font-size: 16px; color: rgb(58, 140, 226); text-align: center; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">技术实现：</section><section style="box-sizing: border-box;">博弈思维引导下的<span style="line-height: 0.91; box-sizing: border-box;">多规融合技术重设</span></section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: left; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;"><strong style="box-sizing: border-box;">（1）“F-C-I”条件博弈—空间<span style="line-height: 1.45; box-sizing: border-box;">布局差异协调处理技术重设</span></strong></section><section style="text-indent: 2em; box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="line-height: 1.45; box-sizing: border-box;"></span></strong></section><section style="text-indent: 2em; box-sizing: border-box;">多规融合微观层面的博弈，主要<span style="line-height: 1.45; box-sizing: border-box;">是对各类具体土地用途做出合理有效的</span><span style="line-height: 1.45; box-sizing: border-box;">判断。基于冲突包容与妥协的规则，对</span><span style="line-height: 1.45; box-sizing: border-box;">土地利用融合提出“F(Factual，即事</span><span style="line-height: 1.45; box-sizing: border-box;">实型)-C(Compulsory，即强制型)-</span><span style="line-height: 1.45; box-sizing: border-box;">I(Introductory，即引导型)”条件博弈</span><span style="line-height: 1.45; box-sizing: border-box;">的构想，即对各类规划的差异布局并不</span><span style="line-height: 1.45; box-sizing: border-box;">由某类规划或某个要素单方面决定，而</span><span style="line-height: 1.45; box-sizing: border-box;">是制定多要素之间的包容与妥协规则，</span><span style="line-height: 1.45; box-sizing: border-box;">引入多元多条件三级依次叠加方法进行</span><span style="line-height: 1.45; box-sizing: border-box;">判断，最终实现布局统一。通过实施三</span><span style="line-height: 1.45; box-sizing: border-box;">级条件依次叠加，将影响城市发展与建</span><span style="line-height: 1.45; box-sizing: border-box;">设的城乡规划、土地利用规划、国民经</span><span style="line-height: 1.45; box-sizing: border-box;">济和社会发展规划和环境保护规划等各</span><span style="line-height: 1.45; box-sizing: border-box;">类规划的关键因子进行分类梳理(可分</span><span style="line-height: 1.45; box-sizing: border-box;">为事实型、强制型和引导型)，综合协调</span><span style="line-height: 1.45; box-sizing: border-box;">判断，参与到空间规划图斑的定性过程</span><span style="line-height: 1.45; box-sizing: border-box;">中，在空间布局实施层面予以落实，真</span><span style="line-height: 1.45; box-sizing: border-box;">正实现多规融合 ( 表 1)。</span></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; "><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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdlsicG1YSFR0EeaacLbKWyCGLRn2eI7LDTibDKaYgkXjMAu3w4S0fgKTgJQ/0?wx_fmt=png" data-ratio="0.5205992509363296" data-w="534"  /></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: left; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">土地利用布局差异融合的包容与妥<span style="line-height: 1.45; box-sizing: border-box;">协规则主要包括：①以土地利用总体规</span><span style="line-height: 1.45; box-sizing: border-box;">划建设用地规模指标作为规划期内的容</span><span style="line-height: 1.45; box-sizing: border-box;">量上限，允许对差异建设用地布局进行</span><span style="line-height: 1.45; box-sizing: border-box;">优化调整；土地利用总体规划建设用地</span><span style="line-height: 1.45; box-sizing: border-box;">规模指标与各规划布局一致的建设用地</span><span style="line-height: 1.45; box-sizing: border-box;">之间的差值为建设用地布局调整的规模</span><span style="line-height: 1.45; box-sizing: border-box;">幅度；②建设用地布局优先承认既有事</span><span style="line-height: 1.45; box-sizing: border-box;">实，将合法已批已建项目用地纳入布局，</span><span style="line-height: 1.45; box-sizing: border-box;">并按照不溯既往的法理原则，将有历史</span><span style="line-height: 1.45; box-sizing: border-box;">遗留问题的建设项目纳入建设用地布局</span><span style="line-height: 1.45; box-sizing: border-box;">中；③土地利用布局需要落实强制性规</span><span style="line-height: 1.45; box-sizing: border-box;">划建设与非建设内容；④在满足②、③</span><span style="line-height: 1.45; box-sizing: border-box;">的基础上，若还存在调整空间，则以城</span><span style="line-height: 1.45; box-sizing: border-box;">乡规划和产业规划引导型内容作为建设</span><span style="line-height: 1.45; box-sizing: border-box;">用地布局优化调整的参照 ( 图 4)。</span></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; "><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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdls21sK8dPyvmfqHHntNGFDe96redh8Bz3VQlQmz5bMXJ71veSoSIwOJA/0?wx_fmt=png" data-ratio="0.9756554307116105" data-w="534"  /></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: left; color: rgb(56, 30, 5); box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;"><strong style="box-sizing: border-box;"><span style="line-height: 1.45; box-sizing: border-box;">（2）</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">生态保护与城市扩张博弈—</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">控制线划定技术重设</span></strong></section><section style="text-indent: 2em; box-sizing: border-box;"><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">控制线划定是多规融合的主要内容</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">之一，也是空间规划顶层设计需要解决</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的关键问题。各类控制线代表各类空间</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">发展权诉求主体的共同协议与纲领，是</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">规划实施与规划调整不可逾越的底线，</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">必须确保其科学性与权威性，尤其是城</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">市增长底线与生态保护底线。控制住各</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">类底线才能保证空间规划顶层设计落到</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">实处。多规融合可根据城市综合发展诉</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">求，提出六大控制线，即建设用地规模</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">边界、城市增长边界、产业布局引导边界、</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">重大基础设施与项目布局边界、基本农</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">田保护边界、生态安全控制线，界定生</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">态安全、耕地保护、城镇增长、重大基</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">础设施布局和产业布局的底线与基本格</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">局。而控制线的划定既不能只考虑城市</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">的发展情况，也不能单纯地强调生态保</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">护，而是应基于生态需求与社会经济发</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">展需求的互动博弈，在生态功能区分析</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">和城镇空间扩张模拟的基础上，进行综</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">合承载力空间评价，充分考虑生态保护</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">与城市扩张的互动博弈，按照确保城市</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">增长边界不侵占生态安全底线(即危害</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">生态功能发挥与生境格局)的原则划定</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">生态安全控制线与城市增长边界。同时，</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">对各类控制线都配套详实、具有可操作</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">性的管控条例，确保控制线能够得到落</span><span style="line-height: 1.45; text-indent: 0px; box-sizing: border-box;">实(图5)。</span></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; "><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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdlsqB1c6IznW6AGOktMvTP8535wPEhibBG3n2Fh7bM5MXOTxg1Avia4gZ0g/0?wx_fmt=png" data-ratio="0.7191011235955056" data-w="534"  /></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; text-align: left; box-sizing: border-box;"><section style="display: inline-block; vertical-align: middle; box-sizing: border-box;"><section style="width: 38px; box-sizing: border-box;"><section style="width: 38px; border-bottom-width: 2px; border-bottom-style: solid; border-bottom-color: rgb(58, 140, 226); margin: 17px 0px -19px 1px; box-sizing: border-box;"></section><section style="margin-left: 5px; width: 30px; height: 36px; box-sizing: border-box;"><section style="margin-left: -1px; box-sizing: border-box;"><section style="width: 0px; box-sizing: border-box;"><section style="border-bottom-width: 10px; border-bottom-style: solid; border-bottom-color: rgb(58, 140, 226); border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section style="border-bottom-width: 10px; border-bottom-style: solid; border-bottom-color: rgb(255, 255, 255); margin-top: -8px; border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section><section style="width: 30px; line-height: 16px; height: 16px; margin: -2px 0px 0px 1px; border-left-width: 2px; border-left-style: solid; border-left-color: rgb(58, 140, 226); border-right-width: 2px; border-right-style: solid; border-right-color: rgb(58, 140, 226); text-align: center; box-sizing: border-box; background-color: rgb(255, 255, 255);" class=""><section style="box-sizing: border-box;">4</section></section><section style="width: 0px; box-sizing: border-box;"><section style="border-top-width: 10px; border-top-style: solid; border-top-color: rgb(58, 140, 226); border-left-width: 16px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 16px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section><section style="border-top-width: 8px; border-top-style: solid; border-top-color: rgb(255, 255, 255); margin-top: -10px; margin-left: 3px; border-left-width: 13px !important; border-left-style: solid !important; border-left-color: transparent !important; border-right-width: 13px !important; border-right-style: solid !important; border-right-color: transparent !important; box-sizing: border-box;"></section></section></section></section></section></section><section style="vertical-align: middle; display: inline-block; padding-left: 5px; box-sizing: border-box;"><section style="line-height: 1.1; font-size: 16px; color: rgb(58, 140, 226); text-align: center; box-sizing: border-box;" class=""><section style="box-sizing: border-box;">制度设计：关注个体 ( 局部 ) 利益</section></section></section></section></section></section><section class="Powered-by-XIUMI V5" style="box-sizing: border-box;"><section class="" style="   box-sizing: border-box; "><section class="" style="text-align: left; box-sizing: border-box;"><section style="text-indent: 2em; box-sizing: border-box;">在信息封闭的情况下，每个个体都<span style="line-height: 1.45; box-sizing: border-box;">是基于自身利益的最大化做出理性选择，</span><span style="line-height: 1.45; box-sizing: border-box;">从而达到“纳什均衡”。博弈论重视互</span><span style="line-height: 1.45; box-sizing: border-box;">动决策，关注个体利益、局部利益与近</span><span style="line-height: 1.45; box-sizing: border-box;">期利益，主张对个人理性(利己)行为施</span><span style="line-height: 1.45; box-sizing: border-box;">加干预(一般包括利益补偿)，从而实现</span><span style="line-height: 1.45; box-sizing: border-box;">集体理性。</span></section><section style="text-indent: 2em; box-sizing: border-box;">多规融合实施制度设计，必须摒弃<span style="line-height: 1.45; box-sizing: border-box;">传统一厢情愿的做法和固有思维(即用</span><span style="line-height: 1.45; box-sizing: border-box;">强制或感化手段实现个人理性与集体理</span><span style="line-height: 1.45; box-sizing: border-box;">性的统一)，基于个体理性行为特征分析，</span><span style="line-height: 1.45; box-sizing: border-box;">设计相关制度。例如，控制线的划定就</span><span style="line-height: 1.45; box-sizing: border-box;">不仅仅是一个空间布局和技术的问题，</span><span style="line-height: 1.45; box-sizing: border-box;">而是控制线划定背后的非空间问题。因</span><span style="line-height: 1.45; box-sizing: border-box;">为一旦被列入生态安全控制区(禁止建</span><span style="line-height: 1.45; box-sizing: border-box;">设区)，则意味着空间经济发展权与生产</span><span style="line-height: 1.45; box-sizing: border-box;">资源配置机会的丧失，其背后的行政主</span><span style="line-height: 1.45; box-sizing: border-box;">体(地方政府)将面临传统绩效考核的风</span><span style="line-height: 1.45; box-sizing: border-box;">险、居民将面临社会经济水平落后的困</span><span style="line-height: 1.45; box-sizing: border-box;">境，地方财政收入得不到保障。如果不</span><span style="line-height: 1.45; box-sizing: border-box;">对这些因划定禁止建设区引起的非空间</span><span style="line-height: 1.45; box-sizing: border-box;">问题进行分析并提出符合个体理性行为</span><span style="line-height: 1.45; box-sizing: border-box;">规律的有效干预方案，如进行生态补偿、</span><span style="line-height: 1.45; box-sizing: border-box;">差别化绩效考核等，仅仅靠强制手段进</span><span style="line-height: 1.45; box-sizing: border-box;">行保护，那么地方能否落实保护要求便</span><span style="line-height: 1.45; box-sizing: border-box;">是个未知数。从博弈论视角看待多规融</span><span style="line-height: 1.45; box-sizing: border-box;">合实施的制度设计，主要包括两个方面，</span><span style="line-height: 1.45; box-sizing: border-box;">即生态补偿与公共品供给和差别化绩效</span><span style="line-height: 1.45; box-sizing: border-box;">考核机制。生态补偿与公共品供给机制，</span><span style="line-height: 1.45; box-sizing: border-box;">包括评估生态价值，制定基本农田、重</span><span style="line-height: 1.45; box-sizing: border-box;">要水源地、重要湿地和生态公益林等生</span><span style="line-height: 1.45; box-sizing: border-box;">态补偿标准，对公共空间进行开发补偿、</span><span style="line-height: 1.45; box-sizing: border-box;">对公共品供给进行经济补偿，将经济红</span><span style="line-height: 1.45; box-sizing: border-box;">利转化为生态、社会红利。差别化绩效</span><span style="line-height: 1.45; box-sizing: border-box;">考核机制，主要是按照主导用途分区性</span><span style="line-height: 1.45; box-sizing: border-box;">质，进行差别化绩效考核，城镇地区与</span><span style="line-height: 1.45; box-sizing: border-box;">产业地区主要考核经济发展目标，包括</span><span style="line-height: 1.45; box-sizing: border-box;">城镇化率、产业结构、就业率、土地使</span><span style="line-height: 1.45; box-sizing: border-box;">用指标、土地利用效率、开发强度、投</span><span style="line-height: 1.45; box-sizing: border-box;">资规模和强度等。农林地区主要考核耕</span><span style="line-height: 1.45; box-sizing: border-box;">地与基本农田保护、农转非、土地开发</span><span style="line-height: 1.45; box-sizing: border-box;">复垦、农村建房等情况。生态安全保护</span><span style="line-height: 1.45; box-sizing: border-box;">区主要考核林木覆盖率、生态红线保护</span><span style="line-height: 1.45; box-sizing: border-box;">情况等。</span></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(104, 175, 201);"><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;"></span>博弈论视角下的多规融合总体框架构建<span style="line-height: 1.45; box-sizing: border-box;"></span>》</strong></section></section></section></section></section></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(58, 140, 226);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(58, 140, 226);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(58, 140, 226);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(58, 140, 226);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(58, 140, 226);"></section><section class="" style="height: 5px; margin-bottom: 5px; box-sizing: border-box; background-color: rgb(58, 140, 226);"></section></section></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><p 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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdlsOLGHmnsUVQDPsBPItve1PFjkRGJya8eOFt2zYGibO87LY4XejsI3GqA/0?wx_fmt=jpeg" data-ratio="0.8651079136690647" data-w=""  /></p><p style="max-width: 100%; min-height: 1em; white-space: normal; color: rgb(62, 62, 62); line-height: 25.6px; text-align: center; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><strong style="max-width: 100%; color: rgb(217, 33, 66); line-height: 23.2727px; box-sizing: border-box !important; word-wrap: break-word !important;"><span style="max-width: 100%; font-size: 14px; box-sizing: border-box !important; word-wrap: break-word !important;">转载须知</span></strong><br style="max-width: 100%; box-sizing: border-box !important; word-wrap: break-word !important;"  /></p><p style="max-width: 100%; min-height: 1em; white-space: normal; color: rgb(62, 62, 62); line-height: 23.2727px; text-align: center; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><strong style="max-width: 100%; box-sizing: border-box !important; word-wrap: break-word !important;"><span style="max-width: 100%; font-size: 12px; color: rgb(217, 33, 66); box-sizing: border-box !important; word-wrap: break-word !important;">个人转发至朋友圈无需获得授权。</span></strong></p><p style="max-width: 100%; min-height: 1em; white-space: normal; color: rgb(62, 62, 62); line-height: 23.2727px; text-align: center; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><span style="max-width: 100%; font-size: 12px; color: rgb(122, 68, 66); box-sizing: border-box !important; word-wrap: break-word !important;">微信公号请于文章发布<span style="max-width: 100%; font-size: 12px; color: rgb(255, 41, 65);"><strong style="max-width: 100%; box-sizing: border-box !important; word-wrap: break-word !important;"><span style="font-size: 12px; max-width: 100%; box-sizing: border-box !important; word-wrap: break-word !important;">两天后</span></strong></span>转载，</span></p><p style="max-width: 100%; min-height: 1em; white-space: normal; color: rgb(62, 62, 62); line-height: 23.2727px; text-align: center; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><span style="max-width: 100%; font-size: 12px; color: rgb(122, 68, 66); box-sizing: border-box !important; word-wrap: break-word !important;">转载时后台回复“转载”二字，</span></p><p style="max-width: 100%; min-height: 1em; white-space: normal; color: rgb(62, 62, 62); line-height: 23.2727px; text-align: center; box-sizing: border-box !important; word-wrap: break-word !important; background-color: rgb(255, 255, 255);"><span style="max-width: 100%; font-size: 12px; color: rgb(122, 68, 66); box-sizing: border-box !important; word-wrap: break-word !important;">无授权图片的童鞋会被举报的哦！</span></p></section><section class="Powered-by-XIUMI V5" style="   box-sizing: border-box; "><p 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/j8bTq15u0mhWf0ImL4xzIicDWQXBicUdlsFsiaZ7O9R4oIHeThZhrfjTPbibb053zb4TOC0eKmjJ0yYSFTFdxg6v7Q/0?wx_fmt=jpeg" data-ratio="0.8507194244604317" data-w=""  /></p><p style=" text-align: center; margin-top: 10px; margin-bottom: 10px;  box-sizing: border-box; "><br  /></p></section></section>
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