基于治理导向的国土空间规划城镇开发边界划定与调整规则探析

Exploration of Delimitation and Adjusting Rules of Urban Development Boundary in Territorial Spatial Planning Based on the Governance Orientation

科学划定城镇开发边界是国土空间规划的核心工作之一,也是推动城镇由“外延扩张”转向“内涵提升”的重要抓手。该工作已进行了较多探索,然而业内尚未对城镇开发边界的内涵理解、划定标准、管控方法与思路完全达成一致,还需不断研究破解逻辑困局、提高划定科学性、明确审批和调整规则。文章认为当前城镇开发边界是“阶段性刚性控制边界”,建议将“城镇开发边界中的集中建设区范围”和“新增建设用地指标”作为上位规划刚性传导指标。结合平原、高原和山地城镇案例,文章指出了开发边界划定的五大要点和调整四类前置条件,提出基于治理导向的城镇开发边界划定和调整规则建议。

Scientifically delimitating the Urban Development Boundary is one of the core work of General Territorial Spatial Planning,which is also an important grasper to promote urban from“External Expansion Model”to“Internal Improvement Model”.This topic has been explored a lot,while there is yet no consensus on the connotation understanding,delimitation criterion or management methods and ideas of the Development Boundary.It requires more research on breaking through the logical dilemma,improving the scientificity of delimitation and clarifying the rules of approval and adjustment.In this article the author believes the Urban Development Boundary as“staged rigid controlling boundary”,and suggests to take the range of“centralized construction area within the Urban Development Boundary”,together with the index of“newly increased construction land”as rigid conduction indexes of upper planning.Combined with the studies of plains,plateaus and mountainous cities,the author points out five key points in delimitating Urban Development Boundary and four preconditions of adjustment.Furthermore,some suggestions on delimitating the urban development boundary as well as adjusting rules,which are based on the governance-orientation,are presented.