近日,中共(gong)中央(yang)辦公(gong)廳、國務院辦公(gong)廳印發了(le)《關于在國土空間規劃中統籌劃定(ding)落實三條控制線的指(zhi)導(dao)意見》,并(bing)發出通(tong)知,要求各(ge)地區各(ge)部(bu)門結合(he)實際(ji)認真貫徹落實。
《關于在國(guo)土空間規劃中統(tong)籌劃定落實三條控(kong)制線的指導意見》全(quan)文如下。
為統(tong)籌劃定落(luo)實生態保護(hu)紅線、永(yong)久基本農田、城鎮開發(fa)邊界三條(tiao)(tiao)控(kong)(kong)制線(以下簡稱三條(tiao)(tiao)控(kong)(kong)制線),現提出如下意見。
一、總體要求
(一)指(zhi)(zhi)導(dao)思想(xiang)。以習近平新時代中國特色(se)社(she)會主義(yi)思想(xiang)為指(zhi)(zhi)導(dao),全面貫徹黨的(de)十(shi)九大精(jing)神,深(shen)入貫徹習近平生態文明思想(xiang),按照黨中央、國務(wu)院(yuan)決策部(bu)署,落實(shi)最嚴格(ge)的(de)生態環境保護制度(du)、耕地保護制度(du)和節約用地制度(du),將三條控(kong)制線(xian)作為調(diao)整經濟結構、規劃產(chan)業(ye)發展、推進城鎮化不可逾(yu)越的(de)紅線(xian),夯實(shi)中華民族永續發展基礎。
(二)基本原則
——底線思維(wei),保(bao)護優先(xian)。以(yi)資源(yuan)環境承載能(neng)力(li)和國(guo)土空間開發適宜性評價為(wei)基礎,科學(xue)有序(xu)統籌(chou)布(bu)局生態、農業(ye)、城(cheng)鎮(zhen)等(deng)功能(neng)空間,強化底線約束(shu),優先(xian)保(bao)障生態安(an)全、糧食安(an)全、國(guo)土安(an)全。
——多規(gui)合(he)一,協調(diao)落實。按照統(tong)一底圖(tu)、統(tong)一標(biao)準、統(tong)一規(gui)劃(hua)、統(tong)一平臺要求,科學(xue)劃(hua)定落實三條(tiao)控制線(xian),做到(dao)不交叉不重疊不沖突(tu)。
——統籌推進(jin),分類(lei)管(guan)控。堅(jian)持(chi)陸海統籌、上下(xia)聯動、區域協(xie)調,根據各地不(bu)同的自然資源稟(bing)賦和經濟(ji)社(she)會發展實(shi)際,針對三條控制(zhi)(zhi)線不(bu)同功能,建立健全分類(lei)管(guan)控機制(zhi)(zhi)。
(三)工作目標(biao)。到2020年年底,結合國(guo)土(tu)空(kong)間規劃編制,完成三條控(kong)制線劃定和落地,協調解決(jue)矛(mao)盾沖突,納入全國(guo)統一(yi)(yi)、多規合一(yi)(yi)的(de)國(guo)土(tu)空(kong)間基礎(chu)信息(xi)(xi)平臺,形成一(yi)(yi)張底圖,實現部(bu)門信息(xi)(xi)共享(xiang),實行嚴格(ge)管控(kong)。到2035年,通過(guo)加強國(guo)土(tu)空(kong)間規劃實施管理,嚴守三條控(kong)制線,引導形成科學(xue)適度有序(xu)的(de)國(guo)土(tu)空(kong)間布(bu)局體系(xi)。
二、科學有(you)序劃定
(四)按(an)照生(sheng)(sheng)(sheng)態(tai)(tai)(tai)功能(neng)(neng)劃定生(sheng)(sheng)(sheng)態(tai)(tai)(tai)保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)紅(hong)線(xian)(xian)。生(sheng)(sheng)(sheng)態(tai)(tai)(tai)保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)紅(hong)線(xian)(xian)是指在生(sheng)(sheng)(sheng)態(tai)(tai)(tai)空間范圍(wei)內(nei)具有特殊(shu)重(zhong)要(yao)(yao)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)功能(neng)(neng)、必須強制性(xing)嚴格(ge)保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)的(de)(de)區域(yu)。優先將具有重(zhong)要(yao)(yao)水(shui)源(yuan)涵養、生(sheng)(sheng)(sheng)物多樣性(xing)維(wei)護(hu)(hu)(hu)(hu)、水(shui)土(tu)保(bao)(bao)(bao)(bao)(bao)(bao)持(chi)、防(fang)風固沙、海(hai)岸(an)(an)防(fang)護(hu)(hu)(hu)(hu)等功能(neng)(neng)的(de)(de)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)功能(neng)(neng)極重(zhong)要(yao)(yao)區域(yu),以(yi)及(ji)(ji)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)極敏(min)感脆弱的(de)(de)水(shui)土(tu)流失、沙漠(mo)化(hua)、石(shi)漠(mo)化(hua)、海(hai)岸(an)(an)侵蝕等區域(yu)劃入(ru)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)紅(hong)線(xian)(xian)。其(qi)他經(jing)評估目前(qian)(qian)雖(sui)然不能(neng)(neng)確定但具有潛在重(zhong)要(yao)(yao)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)價值的(de)(de)區域(yu)也(ye)劃入(ru)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)紅(hong)線(xian)(xian)。對(dui)自(zi)(zi)然保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)地(di)進行調(diao)整優化(hua),評估調(diao)整后(hou)的(de)(de)自(zi)(zi)然保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)地(di)應劃入(ru)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)紅(hong)線(xian)(xian);自(zi)(zi)然保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)地(di)發生(sheng)(sheng)(sheng)調(diao)整的(de)(de),生(sheng)(sheng)(sheng)態(tai)(tai)(tai)保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)紅(hong)線(xian)(xian)相(xiang)應調(diao)整。生(sheng)(sheng)(sheng)態(tai)(tai)(tai)保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)紅(hong)線(xian)(xian)內(nei),自(zi)(zi)然保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)地(di)核心保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)區原則(ze)上禁(jin)止(zhi)人(ren)為活(huo)動(dong),其(qi)他區域(yu)嚴格(ge)禁(jin)止(zhi)開發性(xing)、生(sheng)(sheng)(sheng)產性(xing)建(jian)(jian)設(she)(she)活(huo)動(dong),在符合現行法(fa)律法(fa)規(gui)前(qian)(qian)提(ti)下,除國家(jia)重(zhong)大戰略(lve)項(xiang)目外,僅允許對(dui)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)功能(neng)(neng)不造成破壞的(de)(de)有限人(ren)為活(huo)動(dong),主要(yao)(yao)包(bao)括(kuo):零星的(de)(de)原住民在不擴大現有建(jian)(jian)設(she)(she)用(yong)地(di)和(he)(he)耕地(di)規(gui)模(mo)前(qian)(qian)提(ti)下,修繕生(sheng)(sheng)(sheng)產生(sheng)(sheng)(sheng)活(huo)設(she)(she)施,保(bao)(bao)(bao)(bao)(bao)(bao)留生(sheng)(sheng)(sheng)活(huo)必需(xu)的(de)(de)少量種植、放牧、捕撈、養殖;因國家(jia)重(zhong)大能(neng)(neng)源(yuan)資源(yuan)安全需(xu)要(yao)(yao)開展的(de)(de)戰略(lve)性(xing)能(neng)(neng)源(yuan)資源(yuan)勘(kan)(kan)查(cha),公(gong)益性(xing)自(zi)(zi)然資源(yuan)調(diao)查(cha)和(he)(he)地(di)質勘(kan)(kan)查(cha);自(zi)(zi)然資源(yuan)、生(sheng)(sheng)(sheng)態(tai)(tai)(tai)環(huan)境監測和(he)(he)執法(fa)包(bao)括(kuo)水(shui)文水(shui)資源(yuan)監測及(ji)(ji)涉水(shui)違法(fa)事(shi)件的(de)(de)查(cha)處(chu)等,災害(hai)防(fang)治和(he)(he)應急(ji)搶險活(huo)動(dong);經(jing)依法(fa)批(pi)準進行的(de)(de)非破壞性(xing)科(ke)學研究觀測、標(biao)本采集;經(jing)依法(fa)批(pi)準的(de)(de)考古(gu)調(diao)查(cha)發掘和(he)(he)文物保(bao)(bao)(bao)(bao)(bao)(bao)護(hu)(hu)(hu)(hu)活(huo)動(dong);不破壞生(sheng)(sheng)(sheng)態(tai)(tai)(tai)功能(neng)(neng)的(de)(de)適度參觀旅游和(he)(he)相(xiang)關(guan)的(de)(de)必要(yao)(yao)公(gong)共設(she)(she)施建(jian)(jian)設(she)(she);必須且(qie)無法(fa)避讓、符合縣級以(yi)上國土(tu)空間規(gui)劃的(de)(de)線(xian)(xian)性(xing)基礎設(she)(she)施建(jian)(jian)設(she)(she)、防(fang)洪和(he)(he)供(gong)水(shui)設(she)(she)施建(jian)(jian)設(she)(she)與運行維(wei)護(hu)(hu)(hu)(hu);重(zhong)要(yao)(yao)生(sheng)(sheng)(sheng)態(tai)(tai)(tai)修復工程。
(五)按(an)照保質(zhi)保量要求劃定永久基(ji)(ji)(ji)本(ben)農田(tian)(tian)。永久基(ji)(ji)(ji)本(ben)農田(tian)(tian)是為保障(zhang)國家糧(liang)食安全和重(zhong)(zhong)要農產品(pin)供給,實(shi)施永久特殊(shu)保護(hu)的耕地(di)。依(yi)據(ju)耕地(di)現狀分布,根據(ju)耕地(di)質(zhi)量、糧(liang)食作物種(zhong)植(zhi)情況、土壤污染狀況,在嚴守耕地(di)紅線(xian)基(ji)(ji)(ji)礎上,按(an)照一定比(bi)例,將(jiang)達到(dao)質(zhi)量要求的耕地(di)依(yi)法劃入。已經劃定的永久基(ji)(ji)(ji)本(ben)農田(tian)(tian)中存在劃定不(bu)實(shi)、違(wei)法占用(yong)、嚴重(zhong)(zhong)污染等問題的要全面梳理整改,確保永久基(ji)(ji)(ji)本(ben)農田(tian)(tian)面積不(bu)減、質(zhi)量提升(sheng)、布局穩定。
(六)按照集約(yue)適(shi)度、綠色發(fa)(fa)展(zhan)(zhan)要求劃定(ding)(ding)城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)開發(fa)(fa)邊(bian)界。城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)開發(fa)(fa)邊(bian)界是在一(yi)定(ding)(ding)時期內因城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)發(fa)(fa)展(zhan)(zhan)需要,可以(yi)集中(zhong)進行城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)開發(fa)(fa)建(jian)(jian)設(she)、以(yi)城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)功(gong)能為(wei)(wei)主的區(qu)域(yu)邊(bian)界,涉及城(cheng)(cheng)市、建(jian)(jian)制鎮(zhen)(zhen)(zhen)(zhen)以(yi)及各類開發(fa)(fa)區(qu)等。城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)開發(fa)(fa)邊(bian)界劃定(ding)(ding)以(yi)城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)開發(fa)(fa)建(jian)(jian)設(she)現狀為(wei)(wei)基礎,綜合考慮(lv)資源承載能力、人口分(fen)布(bu)、經濟(ji)布(bu)局、城(cheng)(cheng)鄉統籌、城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)發(fa)(fa)展(zhan)(zhan)階段和發(fa)(fa)展(zhan)(zhan)潛(qian)力,框定(ding)(ding)總量,限定(ding)(ding)容(rong)量,防止城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)無序蔓延(yan)。科學(xue)預留一(yi)定(ding)(ding)比例(li)的留白區(qu),為(wei)(wei)未來發(fa)(fa)展(zhan)(zhan)留有開發(fa)(fa)空(kong)間。城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)建(jian)(jian)設(she)和發(fa)(fa)展(zhan)(zhan)不得違法(fa)違規侵(qin)占河道、湖面、灘地。
三、協(xie)調解決沖(chong)突
(七)統(tong)一(yi)數據基礎。以(yi)目前客觀的(de)土地(di)、海(hai)域(yu)及海(hai)島調查(cha)(cha)數據為(wei)基礎,形成(cheng)統(tong)一(yi)的(de)工(gong)作(zuo)底數底圖。已形成(cheng)第三次國土調查(cha)(cha)成(cheng)果并經認定的(de),可直(zhi)接作(zuo)為(wei)工(gong)作(zuo)底數底圖。相關調查(cha)(cha)數據存在沖突的(de),以(yi)過去(qu)5年真(zhen)實情況為(wei)基礎,根據功能合理性(xing)進行統(tong)一(yi)核(he)定。
(八)自(zi)上而下、上下結合(he)實(shi)現(xian)三條控(kong)(kong)制(zhi)線(xian)(xian)落地(di)。國家明確(que)三條控(kong)(kong)制(zhi)線(xian)(xian)劃定(ding)(ding)和管控(kong)(kong)原則及(ji)相關技術方法;省(自(zi)治區、直(zhi)轄(xia)市)確(que)定(ding)(ding)本行政區域(yu)內三條控(kong)(kong)制(zhi)線(xian)(xian)總體格局(ju)和重點區域(yu),提(ti)出下一(yi)(yi)級劃定(ding)(ding)任務;市、縣(xian)組織統一(yi)(yi)劃定(ding)(ding)三條控(kong)(kong)制(zhi)線(xian)(xian)和鄉村(cun)建設等各類空間實(shi)體邊(bian)界。跨(kua)區域(yu)劃定(ding)(ding)沖突(tu)由上一(yi)(yi)級政府有關部門協調解決。
(九)協調邊界(jie)矛(mao)盾(dun)。三條(tiao)控(kong)(kong)制線(xian)(xian)出(chu)(chu)現(xian)矛(mao)盾(dun)時,生態保(bao)(bao)(bao)護紅線(xian)(xian)要(yao)保(bao)(bao)(bao)證生態功(gong)能(neng)的(de)(de)(de)系統性和(he)(he)完整(zheng)(zheng)性,確(que)(que)保(bao)(bao)(bao)生態功(gong)能(neng)不(bu)降(jiang)低、面積不(bu)減少(shao)(shao)、性質不(bu)改變;永(yong)(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)要(yao)保(bao)(bao)(bao)證適(shi)度(du)合理(li)的(de)(de)(de)規模(mo)和(he)(he)穩定性,確(que)(que)保(bao)(bao)(bao)數量不(bu)減少(shao)(shao)、質量不(bu)降(jiang)低;城鎮(zhen)開發邊界(jie)要(yao)避讓重要(yao)生態功(gong)能(neng),不(bu)占或少(shao)(shao)占永(yong)(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)。目前(qian)已(yi)劃(hua)(hua)入(ru)自(zi)然保(bao)(bao)(bao)護地核(he)心保(bao)(bao)(bao)護區(qu)(qu)的(de)(de)(de)永(yong)(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)、鎮(zhen)村(cun)、礦業權逐(zhu)步(bu)有序(xu)退(tui)出(chu)(chu);已(yi)劃(hua)(hua)入(ru)自(zi)然保(bao)(bao)(bao)護地一般(ban)控(kong)(kong)制區(qu)(qu)的(de)(de)(de),根據對生態功(gong)能(neng)造成的(de)(de)(de)影(ying)響確(que)(que)定是否退(tui)出(chu)(chu),其中,造成明(ming)顯影(ying)響的(de)(de)(de)逐(zhu)步(bu)有序(xu)退(tui)出(chu)(chu),不(bu)造成明(ming)顯影(ying)響的(de)(de)(de)可采取依(yi)法依(yi)規相應調整(zheng)(zheng)一般(ban)控(kong)(kong)制區(qu)(qu)范圍等措(cuo)施(shi)妥善處理(li)。協調過(guo)程中退(tui)出(chu)(chu)的(de)(de)(de)永(yong)(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)在(zai)縣級行政(zheng)區(qu)(qu)域內同步(bu)補劃(hua)(hua),確(que)(que)實無法補劃(hua)(hua)的(de)(de)(de)在(zai)市級行政(zheng)區(qu)(qu)域內補劃(hua)(hua)。
四、強化保障措施
(十(shi))加強(qiang)(qiang)組(zu)織保障。自然資(zi)源部(bu)會同生態(tai)環境部(bu)、國家發展改革委、住房城鄉建設部(bu)、交(jiao)通(tong)運(yun)輸部(bu)、水利部(bu)、農業農村部(bu)等(deng)有(you)關(guan)部(bu)門建立協調機(ji)制,加強(qiang)(qiang)對地方(fang)督(du)促指導(dao)。地方(fang)各級黨(dang)委和政府對本(ben)行(xing)政區域(yu)內三條控制線劃(hua)定和管理工作負總責,結合(he)國土空(kong)間規劃(hua)編制工作有(you)序推進落地。
(十一(yi))嚴格實施管(guan)(guan)理(li)。建立健(jian)全(quan)統(tong)一(yi)的(de)(de)國(guo)(guo)土(tu)空間基礎(chu)信(xin)息(xi)平臺(tai),實現部門信(xin)息(xi)共享(xiang),嚴格三(san)條(tiao)控制線(xian)(xian)監(jian)測監(jian)管(guan)(guan)。三(san)條(tiao)控制線(xian)(xian)是國(guo)(guo)土(tu)空間用(yong)途管(guan)(guan)制的(de)(de)基本(ben)(ben)依據,涉及生態保護紅線(xian)(xian)、永久(jiu)基本(ben)(ben)農田占用(yong)的(de)(de),報國(guo)(guo)務院審批(pi);對(dui)(dui)于生態保護紅線(xian)(xian)內允(yun)許的(de)(de)對(dui)(dui)生態功能不(bu)造(zao)成破壞(huai)的(de)(de)有(you)限人(ren)為活動,由省(sheng)級(ji)政府制定(ding)具體監(jian)管(guan)(guan)辦法;城鎮(zhen)開發邊界調(diao)整(zheng)報國(guo)(guo)土(tu)空間規劃原(yuan)審批(pi)機關審批(pi)。
(十(shi)二)嚴格(ge)監(jian)督(du)考(kao)核(he)(he)。將三條(tiao)控制(zhi)線(xian)劃(hua)定和管控情況作為(wei)地方黨政領導(dao)班子和領導(dao)干部(bu)(bu)政績考(kao)核(he)(he)內容(rong)。國家(jia)自然資(zi)源督(du)察(cha)機(ji)構、生(sheng)態環境部(bu)(bu)要按照職責,會同有關(guan)部(bu)(bu)門開展督(du)察(cha)和監(jian)管,并(bing)將結果移交(jiao)相關(guan)部(bu)(bu)門,作為(wei)領導(dao)干部(bu)(bu)自然資(zi)源資(zi)產離任(ren)審計、績效考(kao)核(he)(he)、獎懲任(ren)免、責任(ren)追(zhui)究的重要依(yi)據。