保护责任与发展权利统筹——“三线”划定的理论基础和规则研究  

COORDINATION BETWEEN THE PROTECTION RESPONSIBILITY AND THE DEVELOPMENT RIGHT:A STUDY ON THE THEORETICAL BASIS AND DEMARCATION RULES OF THE“THREE LINES”

作　　者：程茂吉 CHENG Maoji

机构地区：[1]南京市规划设计研究院有限责任公司

出　　处：《城市规划》2024年第7期55-66,共12页City Planning Review

摘　　要：统筹划定“三线”是贯彻粮食和生态安全国策、完善国土空间保护开发制度、加强国土空间用途管制的重要举措,也是编制各级国土空间总体规划的基础条件。“三线”划定规则的形成经历了较长时间的探索和博弈,博弈的重心在于如何平衡保护责任与发展权利的关系。指导“三线”划定工作的核心理念是总体国家安全观,制度基础是国家空间治理体系,技术支撑是“双评价”成果。按照生态功能重要性和实事求是原则划定了生态保护红线;按照统一规则和层层分解原则,把国家战略确定的耕地保护和永久基本农田划定任务、城镇开发边界扩展倍数落实到具体空间。由于划定规则较为注重政策逻辑和全国统一,难免存在影响划定规则科学性的问题,例如“双评价”支撑不足、保护责任分解和空间发展权利分配体现的区域差异不够、耕地布局集中度不足、部分新建城镇空间存在碎片化问题,需要在未来的专项规划、详细规划和规划编制管理制度方面提出优化措施,为提升国土空间治理水平、完善我国国土空间规划基础理论体系提供支撑。The coordinated demarcation of the“three lines”is an important measure to implement the national policy of guaranteeing food and ecological security,improve the system of territorial and spatial protection and development,and strengthen the regulation of land uses.Moreover,it is also the basic condition for the formulation of territorial planning at all levels.The formation of demarcation rules of“three lines”has gone through a long period of exploration and game,the focus of which lies in how to balance the protection responsibility and the development right.The core concept guiding the demarcation of the“three lines”is the holistic approach to national security,the institutional basis is the territorial and spatial governance system,and the technical support is the result of“double evaluation”.Regarding the importance of ecological function and the principle of seeking truth from facts,the red line of ecological protection is demarcated,following the principle of unified rules and layer-by-layer decomposition,the tasks of farmland protection and permanent basic farmland demarcation determined by the national strategy and the expansion multiple of urban development boundaries is put down to specific spaces.As the demarcation rules lay more emphases on policy-making logic and nation�wide unity,inevitably there are some flaws that affect the scientificity of the demarcation,such as insufficient support of“double evaluation”,insufficient reflection of regional differences in the decomposition of protection responsibility and the allocation of spatial development rights,scattered layout of farmland,and spatial fragmentation of some newly-built urban areas.It is necessary to put forward improvement measures in the future special planning,detailed planning and planning governance system to provide support for promoting the level of territorial and spatial governance and perfecting the basic theoretical system of territorial planning in China.

关 键 词：“三线” 总体国家安全观 国土空间总体规划 

分 类 号：TU984.11[建筑科学—城市规划与设计]