面向实施管理的北京城市开发边界规划

Implementation and Management Oriented Beijing Urban Growth Boundary Planning

划定三条控制线是确立国土空间开发保护格局的基准线,对发挥空间规划刚性管控与战略引领作用意义重大。相比生态保护红线和永久基本农田,城市开发边界更多地体现出难以预期的发展理性和管制弹性,因此在制度设计和现实应用方面尚有较大的探索空间。北京市以全域空间管制和减量发展为基本理念,基于问题导向、目标导向、应用导向开展了“两线三区”规划,集中建设区突出简明导控,限制建设区立足包容生长,生态控制区强调法定规范。探索实践认为,划定城市开发边界仅仅是厘清开发保护边界和府际权责边界的第一步,未来仍需以完善城乡公共政策体系为中心,深化相关工作,特别是要以政府公共财政能力为参照,调整边界管控的目标,同时建立自下而上维护“三条控制线”的社会响应机制,以减轻政府公共治理的负担。

The delimitation of three red limit boundaries is the baseline to establish the pattern of land use development and protection,which is of great significance to exert the rigid control and strategic leading role of spatial planning.Compared with the red line of ecological protection and permanent basic farmland,urban growth boundary belongs to"fast variable".Its management reflects more complex reality,so there is still much room for exploration in the process of system design.Based on the concept of wholly spatial regulation and decrement development,Beijing has carried out two-line and three-zone planning based on problem-oriented,goal-oriented and managementoriented concept.The aim of centralized construction area is to highlight concise guidance and control,while the restricted construction area aims to inclusive growth,and the ecological control area emphasizes statutory norms.The authors propose that delimiting urban growth boundary is only the first step to clarify the boundary of development and protection and the boundary of power and responsibility between governments.In the future,we need to deepen relevant work centering on improving the public policy system,especially on adjusting the boundary control objectives with reference to the government's public financial capacity,and establishing a social response mechanism from bottom to top so as to reduce the burden of public governance.