國(guo)(guo)土(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)是(shi)國(guo)(guo)家(jia)空(kong)間(jian)(jian)發展(zhan)的指南(nan)、可持續發展(zhan)的空(kong)間(jian)(jian)藍(lan)圖，是(shi)各(ge)類開發保(bao)護建(jian)設(she)活動的基本依(yi)據(ju)。建(jian)立國(guo)(guo)土(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)體(ti)系并(bing)(bing)監督實(shi)施，將主(zhu)體(ti)功能區規(gui)(gui)劃(hua)(hua)、土(tu)地利用規(gui)(gui)劃(hua)(hua)、城鄉規(gui)(gui)劃(hua)(hua)等(deng)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)融合為統一的國(guo)(guo)土(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)，實(shi)現(xian)“多規(gui)(gui)合一”，強化國(guo)(guo)土(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)對(dui)各(ge)專(zhuan)項規(gui)(gui)劃(hua)(hua)的指導約束作用，是(shi)黨中央(yang)、國(guo)(guo)務院(yuan)作出(chu)的重大部署。為建(jian)立國(guo)(guo)土(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)體(ti)系并(bing)(bing)監督實(shi)施，現(xian)提(ti)出(chu)如下意(yi)見(jian)。
一、重大意(yi)義
各(ge)級各(ge)類空(kong)間(jian)規(gui)(gui)劃在支撐城鎮(zhen)化快速發(fa)(fa)(fa)展、促進(jin)國(guo)土空(kong)間(jian)合(he)理(li)利用和有效保護方面發(fa)(fa)(fa)揮了積極作(zuo)用，但也存在規(gui)(gui)劃類型過(guo)多、內容重疊(die)沖突(tu)，審批(pi)流(liu)程復雜(za)、周期過(guo)長，地(di)方規(gui)(gui)劃朝令(ling)夕改等問題。建(jian)立全國(guo)統一(yi)、責權清(qing)晰、科學(xue)(xue)高(gao)效的(de)(de)國(guo)土空(kong)間(jian)規(gui)(gui)劃體(ti)系，整體(ti)謀劃新時代國(guo)土空(kong)間(jian)開發(fa)(fa)(fa)保護格局(ju)，綜(zong)合(he)考(kao)慮(lv)人口分布、經(jing)濟布局(ju)、國(guo)土利用、生態環境保護等因(yin)素(su)，科學(xue)(xue)布局(ju)生產(chan)(chan)空(kong)間(jian)、生活空(kong)間(jian)、生態空(kong)間(jian)，是(shi)加快形成綠色生產(chan)(chan)方式(shi)和生活方式(shi)、推進(jin)生態文明建(jian)設(she)、建(jian)設(she)美麗(li)中(zhong)(zhong)國(guo)的(de)(de)關鍵舉措，是(shi)堅持以人民(min)為中(zhong)(zhong)心(xin)、實(shi)(shi)現(xian)高(gao)質(zhi)量發(fa)(fa)(fa)展和高(gao)品質(zhi)生活、建(jian)設(she)美好家(jia)園的(de)(de)重要手(shou)段(duan)，是(shi)保障國(guo)家(jia)戰(zhan)略有效實(shi)(shi)施、促進(jin)國(guo)家(jia)治理(li)體(ti)系和治理(li)能力現(xian)代化、實(shi)(shi)現(xian)“兩個(ge)一(yi)百年”奮斗目標和中(zhong)(zhong)華民(min)族偉大復興中(zhong)(zhong)國(guo)夢的(de)(de)必然要求。
二(er)、總體(ti)要求
（一）指(zhi)導(dao)思想。以習近平(ping)新時代中國(guo)特色(se)社(she)會(hui)主義思想為指(zhi)導(dao)，全面(mian)貫徹(che)黨(dang)的十(shi)九(jiu)大和十(shi)九(jiu)屆(jie)二中、三(san)中全會(hui)精神，緊緊圍繞統籌(chou)推(tui)(tui)進“五(wu)位一體(ti)”總體(ti)布局和協調推(tui)(tui)進“四個全面(mian)”戰略(lve)布局，堅持(chi)(chi)新發(fa)展理念，堅持(chi)(chi)以人民為中心，堅持(chi)(chi)一切從(cong)實際出發(fa)，按照(zhao)高質量(liang)(liang)發(fa)展要(yao)求，做好國(guo)土(tu)(tu)空(kong)(kong)間(jian)規(gui)(gui)劃(hua)(hua)頂(ding)層(ceng)設(she)計(ji)，發(fa)揮國(guo)土(tu)(tu)空(kong)(kong)間(jian)規(gui)(gui)劃(hua)(hua)在國(guo)家規(gui)(gui)劃(hua)(hua)體(ti)系中的基礎性(xing)作(zuo)(zuo)用，為國(guo)家發(fa)展規(gui)(gui)劃(hua)(hua)落地(di)實施提供(gong)空(kong)(kong)間(jian)保障(zhang)。健全國(guo)土(tu)(tu)空(kong)(kong)間(jian)開發(fa)保護制度，體(ti)現(xian)戰略(lve)性(xing)、提高科學性(xing)、強化(hua)權威性(xing)、加強協調性(xing)、注重操作(zuo)(zuo)性(xing)，實現(xian)國(guo)土(tu)(tu)空(kong)(kong)間(jian)開發(fa)保護更(geng)(geng)高質量(liang)(liang)、更(geng)(geng)有效率、更(geng)(geng)加公平(ping)、更(geng)(geng)可持(chi)(chi)續。
（二）主要目標(biao)。到2020年(nian)(nian)，基本建立(li)國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)規(gui)(gui)劃體(ti)(ti)系，逐步建立(li)“多規(gui)(gui)合一”的規(gui)(gui)劃編(bian)制(zhi)審批體(ti)(ti)系、實(shi)施監督體(ti)(ti)系、法(fa)規(gui)(gui)政策體(ti)(ti)系和(he)技術標(biao)準(zhun)體(ti)(ti)系；基本完成(cheng)市縣以上各級(ji)國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)總體(ti)(ti)規(gui)(gui)劃編(bian)制(zhi)，初步形成(cheng)全(quan)(quan)(quan)國(guo)(guo)國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)開(kai)發(fa)(fa)保護“一張(zhang)圖”。到2025年(nian)(nian)，健全(quan)(quan)(quan)國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)規(gui)(gui)劃法(fa)規(gui)(gui)政策和(he)技術標(biao)準(zhun)體(ti)(ti)系；全(quan)(quan)(quan)面實(shi)施國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)監測預警(jing)和(he)績效考(kao)核機制(zhi)；形成(cheng)以國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)規(gui)(gui)劃為(wei)基礎，以統(tong)一用途(tu)管制(zhi)為(wei)手段(duan)的國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)開(kai)發(fa)(fa)保護制(zhi)度。到2035年(nian)(nian)，全(quan)(quan)(quan)面提(ti)升國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)治(zhi)理體(ti)(ti)系和(he)治(zhi)理能力現代化水平(ping)，基本形成(cheng)生(sheng)(sheng)產空(kong)(kong)(kong)間(jian)(jian)(jian)集約(yue)高效、生(sheng)(sheng)活空(kong)(kong)(kong)間(jian)(jian)(jian)宜居(ju)適(shi)度、生(sheng)(sheng)態空(kong)(kong)(kong)間(jian)(jian)(jian)山(shan)清(qing)水秀(xiu)，安全(quan)(quan)(quan)和(he)諧、富有(you)競爭力和(he)可持續發(fa)(fa)展(zhan)的國(guo)(guo)土(tu)(tu)空(kong)(kong)(kong)間(jian)(jian)(jian)格局。
三、總(zong)體框架
（三）分級(ji)分類建立(li)國(guo)(guo)土空(kong)間(jian)(jian)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)。國(guo)(guo)土空(kong)間(jian)(jian)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)是(shi)對一定區域國(guo)(guo)土空(kong)間(jian)(jian)開發(fa)保護(hu)在空(kong)間(jian)(jian)和(he)時間(jian)(jian)上作出的(de)安排，包括總(zong)體規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)、詳(xiang)細(xi)(xi)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)和(he)相(xiang)關(guan)專(zhuan)項(xiang)(xiang)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)。國(guo)(guo)家(jia)、省、市縣(xian)編(bian)制國(guo)(guo)土空(kong)間(jian)(jian)總(zong)體規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)，各地結合實(shi)際編(bian)制鄉(xiang)鎮國(guo)(guo)土空(kong)間(jian)(jian)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)。相(xiang)關(guan)專(zhuan)項(xiang)(xiang)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)是(shi)指在特(te)(te)定區域（流域）、特(te)(te)定領(ling)域，為體現特(te)(te)定功(gong)能，對空(kong)間(jian)(jian)開發(fa)保護(hu)利用作出的(de)專(zhuan)門安排，是(shi)涉及(ji)空(kong)間(jian)(jian)利用的(de)專(zhuan)項(xiang)(xiang)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)。國(guo)(guo)土空(kong)間(jian)(jian)總(zong)體規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)是(shi)詳(xiang)細(xi)(xi)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)的(de)依據、相(xiang)關(guan)專(zhuan)項(xiang)(xiang)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)的(de)基(ji)礎；相(xiang)關(guan)專(zhuan)項(xiang)(xiang)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)要(yao)相(xiang)互協同，并與詳(xiang)細(xi)(xi)規(gui)(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)做好銜接。
（四(si)）明確(que)各級(ji)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)總體(ti)規(gui)劃(hua)(hua)(hua)編(bian)(bian)制(zhi)(zhi)(zhi)(zhi)重(zhong)(zhong)點。全(quan)(quan)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)是對全(quan)(quan)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)作出(chu)的(de)全(quan)(quan)局安(an)排(pai)，是全(quan)(quan)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)保護、開發(fa)、利用、修復的(de)政(zheng)(zheng)策和總綱，側(ce)(ce)重(zhong)(zhong)戰略(lve)性(xing)，由(you)自然(ran)資源部會同相關部門(men)組(zu)(zu)織(zhi)編(bian)(bian)制(zhi)(zhi)(zhi)(zhi)，由(you)黨中央、國(guo)(guo)(guo)(guo)(guo)(guo)(guo)務院(yuan)(yuan)審定后印(yin)發(fa)。省(sheng)級(ji)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)是對全(quan)(quan)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)的(de)落實(shi)，指(zhi)導市(shi)縣國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)編(bian)(bian)制(zhi)(zhi)(zhi)(zhi)，側(ce)(ce)重(zhong)(zhong)協調性(xing)，由(you)省(sheng)級(ji)政(zheng)(zheng)府組(zu)(zu)織(zhi)編(bian)(bian)制(zhi)(zhi)(zhi)(zhi)，經同級(ji)人(ren)大(da)常委會審議(yi)后報(bao)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)務院(yuan)(yuan)審批(pi)。市(shi)縣和鄉(xiang)(xiang)鎮(zhen)(zhen)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)是本級(ji)政(zheng)(zheng)府對上級(ji)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)要求的(de)細化(hua)落實(shi)，是對本行(xing)政(zheng)(zheng)區域開發(fa)保護作出(chu)的(de)具(ju)體(ti)安(an)排(pai)，側(ce)(ce)重(zhong)(zhong)實(shi)施性(xing)。需(xu)報(bao)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)務院(yuan)(yuan)審批(pi)的(de)城市(shi)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)總體(ti)規(gui)劃(hua)(hua)(hua)，由(you)市(shi)政(zheng)(zheng)府組(zu)(zu)織(zhi)編(bian)(bian)制(zhi)(zhi)(zhi)(zhi)，經同級(ji)人(ren)大(da)常委會審議(yi)后，由(you)省(sheng)級(ji)政(zheng)(zheng)府報(bao)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)務院(yuan)(yuan)審批(pi)；其(qi)他(ta)市(shi)縣及鄉(xiang)(xiang)鎮(zhen)(zhen)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)由(you)省(sheng)級(ji)政(zheng)(zheng)府根據當地實(shi)際，明確(que)規(gui)劃(hua)(hua)(hua)編(bian)(bian)制(zhi)(zhi)(zhi)(zhi)審批(pi)內(nei)容和程序要求。各地可因地制(zhi)(zhi)(zhi)(zhi)宜，將市(shi)縣與(yu)鄉(xiang)(xiang)鎮(zhen)(zhen)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)合并編(bian)(bian)制(zhi)(zhi)(zhi)(zhi)，也可以幾個鄉(xiang)(xiang)鎮(zhen)(zhen)為單元編(bian)(bian)制(zhi)(zhi)(zhi)(zhi)鄉(xiang)(xiang)鎮(zhen)(zhen)級(ji)國(guo)(guo)(guo)(guo)(guo)(guo)(guo)土(tu)(tu)(tu)空(kong)(kong)間(jian)(jian)(jian)(jian)規(gui)劃(hua)(hua)(hua)。
（五）強化(hua)對專項(xiang)(xiang)(xiang)規(gui)劃(hua)(hua)的(de)(de)指導約束作用(yong)。海岸帶(dai)、自然保護地等專項(xiang)(xiang)(xiang)規(gui)劃(hua)(hua)及(ji)跨行政區域或流域的(de)(de)國(guo)土空間規(gui)劃(hua)(hua)，由(you)所在(zai)區域或上一(yi)級自然資源(yuan)主(zhu)管部門牽(qian)頭組織(zhi)編制(zhi)，報同(tong)級政府(fu)審(shen)批；涉(she)及(ji)空間利用(yong)的(de)(de)某一(yi)領域專項(xiang)(xiang)(xiang)規(gui)劃(hua)(hua)，如交通、能源(yuan)、水利、農業、信息、市(shi)政等基礎設(she)施(shi)，公共服務設(she)施(shi)，軍事設(she)施(shi)，以及(ji)生態環境保護、文物(wu)保護、林業草原等專項(xiang)(xiang)(xiang)規(gui)劃(hua)(hua)，由(you)相(xiang)(xiang)關主(zhu)管部門組織(zhi)編制(zhi)。相(xiang)(xiang)關專項(xiang)(xiang)(xiang)規(gui)劃(hua)(hua)可在(zai)國(guo)家、省(sheng)和市(shi)縣(xian)層級編制(zhi)，不同(tong)層級、不同(tong)地區的(de)(de)專項(xiang)(xiang)(xiang)規(gui)劃(hua)(hua)可結合實(shi)際選(xuan)擇編制(zhi)的(de)(de)類型和精度。
（六(liu)）在市(shi)縣及以(yi)下編(bian)制詳細(xi)(xi)規(gui)(gui)劃(hua)(hua)(hua)(hua)(hua)。詳細(xi)(xi)規(gui)(gui)劃(hua)(hua)(hua)(hua)(hua)是對(dui)具體地塊用途和開(kai)(kai)(kai)發(fa)(fa)建設強度等(deng)作出的(de)(de)(de)實施性(xing)安排，是開(kai)(kai)(kai)展(zhan)國土空(kong)間(jian)開(kai)(kai)(kai)發(fa)(fa)保護活動、實施國土空(kong)間(jian)用途管制、核(he)發(fa)(fa)城(cheng)(cheng)鄉建設項(xiang)目規(gui)(gui)劃(hua)(hua)(hua)(hua)(hua)許(xu)可、進行各項(xiang)建設等(deng)的(de)(de)(de)法定依據。在城(cheng)(cheng)鎮開(kai)(kai)(kai)發(fa)(fa)邊界內的(de)(de)(de)詳細(xi)(xi)規(gui)(gui)劃(hua)(hua)(hua)(hua)(hua)，由市(shi)縣自然資源主管部門(men)組織編(bian)制，報(bao)同級(ji)政府(fu)審(shen)批；在城(cheng)(cheng)鎮開(kai)(kai)(kai)發(fa)(fa)邊界外的(de)(de)(de)鄉村(cun)地區，以(yi)一個(ge)(ge)或幾個(ge)(ge)行政村(cun)為單元，由鄉鎮政府(fu)組織編(bian)制“多規(gui)(gui)合一”的(de)(de)(de)實用性(xing)村(cun)莊規(gui)(gui)劃(hua)(hua)(hua)(hua)(hua)，作為詳細(xi)(xi)規(gui)(gui)劃(hua)(hua)(hua)(hua)(hua)，報(bao)上一級(ji)政府(fu)審(shen)批。
四(si)、編制要求
（七）體現(xian)戰略性。全面落實(shi)黨中央、國(guo)務院重大決策部署，體現(xian)國(guo)家意志和(he)國(guo)家發(fa)展(zhan)規劃(hua)的戰略性，自上(shang)而下編制(zhi)各級國(guo)土空(kong)(kong)間(jian)(jian)規劃(hua)，對空(kong)(kong)間(jian)(jian)發(fa)展(zhan)作出戰略性系統性安排。落實(shi)國(guo)家安全戰略、區域協調發(fa)展(zhan)戰略和(he)主(zhu)體功能區戰略，明(ming)確空(kong)(kong)間(jian)(jian)發(fa)展(zhan)目(mu)標，優(you)化(hua)城鎮化(hua)格(ge)局(ju)(ju)、農業生(sheng)產格(ge)局(ju)(ju)、生(sheng)態保護(hu)格(ge)局(ju)(ju)，確定空(kong)(kong)間(jian)(jian)發(fa)展(zhan)策略，轉(zhuan)變國(guo)土空(kong)(kong)間(jian)(jian)開發(fa)保護(hu)方(fang)式，提(ti)升國(guo)土空(kong)(kong)間(jian)(jian)開發(fa)保護(hu)質量和(he)效率。
（八）提高(gao)科(ke)學性。堅(jian)持(chi)生(sheng)態(tai)優(you)(you)先(xian)、綠色發展(zhan)(zhan)，尊重自然規(gui)律(lv)、經濟規(gui)律(lv)、社(she)會規(gui)律(lv)和(he)(he)城(cheng)鄉發展(zhan)(zhan)規(gui)律(lv)，因地(di)制(zhi)(zhi)宜(yi)開(kai)(kai)展(zhan)(zhan)規(gui)劃(hua)(hua)編(bian)制(zhi)(zhi)工作；堅(jian)持(chi)節約(yue)優(you)(you)先(xian)、保(bao)護(hu)(hu)(hu)優(you)(you)先(xian)、自然恢復為(wei)主的(de)方針，在資(zi)源環(huan)境承載能力(li)和(he)(he)國土空(kong)(kong)(kong)間(jian)開(kai)(kai)發適宜(yi)性評價的(de)基(ji)礎(chu)上(shang)，科(ke)學有(you)序統籌(chou)布局生(sheng)態(tai)、農(nong)業、城(cheng)鎮(zhen)等(deng)功(gong)能空(kong)(kong)(kong)間(jian)，劃(hua)(hua)定生(sheng)態(tai)保(bao)護(hu)(hu)(hu)紅線(xian)(xian)、永(yong)久(jiu)基(ji)本農(nong)田、城(cheng)鎮(zhen)開(kai)(kai)發邊(bian)界等(deng)空(kong)(kong)(kong)間(jian)管(guan)控(kong)邊(bian)界以及各(ge)類海域保(bao)護(hu)(hu)(hu)線(xian)(xian)，強化底線(xian)(xian)約(yue)束，為(wei)可持(chi)續(xu)(xu)發展(zhan)(zhan)預留空(kong)(kong)(kong)間(jian)。堅(jian)持(chi)山水林(lin)田湖草生(sheng)命(ming)共同(tong)(tong)(tong)體理(li)念，加(jia)強生(sheng)態(tai)環(huan)境分(fen)區管(guan)治，量水而行，保(bao)護(hu)(hu)(hu)生(sheng)態(tai)屏障(zhang)，構(gou)建生(sheng)態(tai)廊道和(he)(he)生(sheng)態(tai)網絡(luo)，推進(jin)生(sheng)態(tai)系統保(bao)護(hu)(hu)(hu)和(he)(he)修復，依(yi)法(fa)開(kai)(kai)展(zhan)(zhan)環(huan)境影響評價。堅(jian)持(chi)陸(lu)海統籌(chou)、區域協調、城(cheng)鄉融合，優(you)(you)化國土空(kong)(kong)(kong)間(jian)結(jie)構(gou)和(he)(he)布局，統籌(chou)地(di)上(shang)地(di)下(xia)空(kong)(kong)(kong)間(jian)綜合利用(yong)，著力(li)完善交通、水利等(deng)基(ji)礎(chu)設施和(he)(he)公共服(fu)務設施，延續(xu)(xu)歷(li)史(shi)文(wen)脈，加(jia)強風(feng)貌管(guan)控(kong)，突(tu)出地(di)域特色。堅(jian)持(chi)上(shang)下(xia)結(jie)合、社(she)會協同(tong)(tong)(tong)，完善公眾(zhong)參(can)與制(zhi)(zhi)度，發揮不同(tong)(tong)(tong)領域專家的(de)作用(yong)。運用(yong)城(cheng)市設計、鄉村營造、大數(shu)據等(deng)手(shou)段，改進(jin)規(gui)劃(hua)(hua)方法(fa)，提高(gao)規(gui)劃(hua)(hua)編(bian)制(zhi)(zhi)水平。
（九）加強協調性。強化(hua)國家發(fa)展規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)的(de)統領作用，強化(hua)國土(tu)空(kong)(kong)間規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)的(de)基(ji)礎作用。國土(tu)空(kong)(kong)間總(zong)體規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)要(yao)統籌和綜合(he)平衡各相關專項領域的(de)空(kong)(kong)間需求。詳(xiang)細規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)要(yao)依據(ju)批準的(de)國土(tu)空(kong)(kong)間總(zong)體規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)進行編制和修(xiu)改。相關專項規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)要(yao)遵循國土(tu)空(kong)(kong)間總(zong)體規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)，不得違背總(zong)體規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)強制性內容，其(qi)主(zhu)要(yao)內容要(yao)納(na)入(ru)詳(xiang)細規(gui)(gui)(gui)(gui)劃(hua)(hua)(hua)(hua)。
（十）注重操作性。按照誰組(zu)織編制(zhi)、誰負(fu)責實(shi)施(shi)(shi)的原(yuan)則，明(ming)確各級(ji)各類(lei)國(guo)土(tu)空間規劃編制(zhi)和管理的要(yao)(yao)點。明(ming)確規劃約束性指標和剛性管控(kong)要(yao)(yao)求(qiu)，同時提出指導性要(yao)(yao)求(qiu)。制(zhi)定實(shi)施(shi)(shi)規劃的政策措(cuo)施(shi)(shi)，提出下級(ji)國(guo)土(tu)空間總體規劃和相關專項規劃、詳細規劃的分(fen)解落實(shi)要(yao)(yao)求(qiu)，健全規劃實(shi)施(shi)(shi)傳導機制(zhi)，確保規劃能用、管用、好(hao)用。
五、實施與監(jian)管
（十一(yi)）強化(hua)規(gui)(gui)(gui)劃(hua)(hua)權威。規(gui)(gui)(gui)劃(hua)(hua)一(yi)經批(pi)復，任何部(bu)門和個人(ren)不得(de)隨意修(xiu)改(gai)、違(wei)規(gui)(gui)(gui)變更，防止(zhi)出(chu)現(xian)換一(yi)屆黨委和政府改(gai)一(yi)次規(gui)(gui)(gui)劃(hua)(hua)。下級國(guo)(guo)土(tu)空間規(gui)(gui)(gui)劃(hua)(hua)要(yao)(yao)服從(cong)上級國(guo)(guo)土(tu)空間規(gui)(gui)(gui)劃(hua)(hua)，相關專項規(gui)(gui)(gui)劃(hua)(hua)、詳細規(gui)(gui)(gui)劃(hua)(hua)要(yao)(yao)服從(cong)總體(ti)規(gui)(gui)(gui)劃(hua)(hua)；堅持先(xian)規(gui)(gui)(gui)劃(hua)(hua)、后(hou)實施(shi)(shi)，不得(de)違(wei)反國(guo)(guo)土(tu)空間規(gui)(gui)(gui)劃(hua)(hua)進(jin)行(xing)各類開發(fa)建(jian)設(she)活動(dong)；堅持“多(duo)規(gui)(gui)(gui)合一(yi)”，不在國(guo)(guo)土(tu)空間規(gui)(gui)(gui)劃(hua)(hua)體(ti)系之外另設(she)其(qi)他空間規(gui)(gui)(gui)劃(hua)(hua)。相關專項規(gui)(gui)(gui)劃(hua)(hua)的有(you)關技術標(biao)準應與國(guo)(guo)土(tu)空間規(gui)(gui)(gui)劃(hua)(hua)銜(xian)接。因(yin)國(guo)(guo)家(jia)重大戰略調整(zheng)、重大項目建(jian)設(she)或(huo)行(xing)政區劃(hua)(hua)調整(zheng)等確需(xu)修(xiu)改(gai)規(gui)(gui)(gui)劃(hua)(hua)的，須先(xian)經規(gui)(gui)(gui)劃(hua)(hua)審批(pi)機(ji)關同意后(hou)，方可按法定程(cheng)序進(jin)行(xing)修(xiu)改(gai)。對國(guo)(guo)土(tu)空間規(gui)(gui)(gui)劃(hua)(hua)編制和實施(shi)(shi)過(guo)程(cheng)中(zhong)的違(wei)規(gui)(gui)(gui)違(wei)紀違(wei)法行(xing)為，要(yao)(yao)嚴(yan)肅追究責任。
（十二）改進規(gui)劃(hua)(hua)審(shen)(shen)批(pi)(pi)。按照誰(shui)審(shen)(shen)批(pi)(pi)、誰(shui)監管的(de)(de)(de)原則，分級建立國(guo)土(tu)空(kong)間(jian)規(gui)劃(hua)(hua)審(shen)(shen)查備案制度。精簡規(gui)劃(hua)(hua)審(shen)(shen)批(pi)(pi)內容，管什(shen)么就批(pi)(pi)什(shen)么，大幅(fu)縮減(jian)審(shen)(shen)批(pi)(pi)時間(jian)。減(jian)少需報國(guo)務院審(shen)(shen)批(pi)(pi)的(de)(de)(de)城市數量，直轄(xia)市、計劃(hua)(hua)單列(lie)市、省(sheng)會城市及國(guo)務院指(zhi)定(ding)城市的(de)(de)(de)國(guo)土(tu)空(kong)間(jian)總(zong)體規(gui)劃(hua)(hua)由國(guo)務院審(shen)(shen)批(pi)(pi)。相關(guan)專項規(gui)劃(hua)(hua)在(zai)編制和審(shen)(shen)查過(guo)程中(zhong)應加強與(yu)有關(guan)國(guo)土(tu)空(kong)間(jian)規(gui)劃(hua)(hua)的(de)(de)(de)銜接及“一(yi)張(zhang)圖(tu)(tu)”的(de)(de)(de)核對，批(pi)(pi)復后納入同級國(guo)土(tu)空(kong)間(jian)基礎信息(xi)平臺，疊加到國(guo)土(tu)空(kong)間(jian)規(gui)劃(hua)(hua)“一(yi)張(zhang)圖(tu)(tu)”上。
（十(shi)三）健(jian)全用途管(guan)制(zhi)(zhi)(zhi)(zhi)制(zhi)(zhi)(zhi)(zhi)度(du)。以國(guo)土(tu)空間規劃為(wei)依據，對所(suo)有國(guo)土(tu)空間分(fen)區分(fen)類實施用途管(guan)制(zhi)(zhi)(zhi)(zhi)。在(zai)城鎮開發邊(bian)界(jie)內的(de)建(jian)設，實行(xing)“詳細(xi)規劃+規劃許(xu)可(ke)”的(de)管(guan)制(zhi)(zhi)(zhi)(zhi)方式；在(zai)城鎮開發邊(bian)界(jie)外的(de)建(jian)設，按(an)照(zhao)主導用途分(fen)區，實行(xing)“詳細(xi)規劃+規劃許(xu)可(ke)”和(he)(he)“約束(shu)指標(biao)+分(fen)區準入”的(de)管(guan)制(zhi)(zhi)(zhi)(zhi)方式。對以國(guo)家公園為(wei)主體的(de)自然(ran)保護地(di)(di)、重(zhong)要海(hai)域和(he)(he)海(hai)島、重(zhong)要水源地(di)(di)、文物等實行(xing)特殊保護制(zhi)(zhi)(zhi)(zhi)度(du)。因地(di)(di)制(zhi)(zhi)(zhi)(zhi)宜制(zhi)(zhi)(zhi)(zhi)定用途管(guan)制(zhi)(zhi)(zhi)(zhi)制(zhi)(zhi)(zhi)(zhi)度(du)，為(wei)地(di)(di)方管(guan)理和(he)(he)創(chuang)新活動(dong)留有空間。
（十(shi)四）監(jian)(jian)督規劃(hua)(hua)實(shi)(shi)施(shi)。依(yi)托國(guo)(guo)(guo)土(tu)(tu)空(kong)(kong)間(jian)基礎(chu)信(xin)息(xi)平(ping)臺，建立(li)健全(quan)國(guo)(guo)(guo)土(tu)(tu)空(kong)(kong)間(jian)規劃(hua)(hua)動態監(jian)(jian)測評估預警和(he)實(shi)(shi)施(shi)監(jian)(jian)管機制(zhi)。上級(ji)自然資(zi)源主管部門要(yao)會同有(you)關部門組織對(dui)下級(ji)國(guo)(guo)(guo)土(tu)(tu)空(kong)(kong)間(jian)規劃(hua)(hua)中各類管控邊界、約束(shu)性(xing)指(zhi)標等(deng)管控要(yao)求的落實(shi)(shi)情況(kuang)進行(xing)監(jian)(jian)督檢查，將(jiang)國(guo)(guo)(guo)土(tu)(tu)空(kong)(kong)間(jian)規劃(hua)(hua)執(zhi)行(xing)情況(kuang)納入(ru)自然資(zi)源執(zhi)法督察(cha)內容(rong)。健全(quan)資(zi)源環境承載能力監(jian)(jian)測預警長效(xiao)機制(zhi)，建立(li)國(guo)(guo)(guo)土(tu)(tu)空(kong)(kong)間(jian)規劃(hua)(hua)定期(qi)評估制(zhi)度，結(jie)合國(guo)(guo)(guo)民經(jing)濟社(she)會發展(zhan)實(shi)(shi)際和(he)規劃(hua)(hua)定期(qi)評估結(jie)果，對(dui)國(guo)(guo)(guo)土(tu)(tu)空(kong)(kong)間(jian)規劃(hua)(hua)進行(xing)動態調(diao)整完(wan)善(shan)。
（十五）推進(jin)“放管服”改革。以“多(duo)規(gui)(gui)合(he)一”為(wei)基礎，統籌規(gui)(gui)劃(hua)(hua)、建(jian)設(she)、管理(li)三大(da)環節，推動“多(duo)審合(he)一”、“多(duo)證合(he)一”。優化現行建(jian)設(she)項目用地(di)（海）預審、規(gui)(gui)劃(hua)(hua)選址以及建(jian)設(she)用地(di)規(gui)(gui)劃(hua)(hua)許(xu)可、建(jian)設(she)工(gong)程(cheng)規(gui)(gui)劃(hua)(hua)許(xu)可等審批流程(cheng)，提高審批效能(neng)和監管服務水平。
六、法規政策與技(ji)術保障
（十六）完善(shan)法(fa)(fa)(fa)規(gui)政策體(ti)系。研究(jiu)制定(ding)國(guo)土(tu)(tu)空間(jian)(jian)開(kai)發保護法(fa)(fa)(fa)，加快國(guo)土(tu)(tu)空間(jian)(jian)規(gui)劃相(xiang)關法(fa)(fa)(fa)律(lv)法(fa)(fa)(fa)規(gui)建設(she)。梳理與國(guo)土(tu)(tu)空間(jian)(jian)規(gui)劃相(xiang)關的(de)(de)現(xian)行法(fa)(fa)(fa)律(lv)法(fa)(fa)(fa)規(gui)和部門規(gui)章，對“多規(gui)合一”改革(ge)涉(she)及突(tu)破現(xian)行法(fa)(fa)(fa)律(lv)法(fa)(fa)(fa)規(gui)規(gui)定(ding)的(de)(de)內容和條款，按程序報批，取得授權后(hou)施(shi)行，并(bing)做好過渡(du)時期(qi)的(de)(de)法(fa)(fa)(fa)律(lv)法(fa)(fa)(fa)規(gui)銜接(jie)。完善(shan)適(shi)應主體(ti)功能區(qu)要求的(de)(de)配套政策，保障國(guo)土(tu)(tu)空間(jian)(jian)規(gui)劃有效(xiao)實施(shi)。
（十七）完(wan)善技(ji)術標(biao)準(zhun)(zhun)體(ti)系。按照(zhao)“多規合一(yi)”要求，由自(zi)然資源部(bu)會(hui)同(tong)相關部(bu)門(men)負責(ze)構建統一(yi)的國(guo)土(tu)(tu)空(kong)間規劃技(ji)術標(biao)準(zhun)(zhun)體(ti)系，修訂完(wan)善國(guo)土(tu)(tu)資源現(xian)狀調查和(he)國(guo)土(tu)(tu)空(kong)間規劃用地分(fen)類標(biao)準(zhun)(zhun)，制定各(ge)級各(ge)類國(guo)土(tu)(tu)空(kong)間規劃編制辦法(fa)和(he)技(ji)術規程。
（十八(ba)）完善國土(tu)空(kong)(kong)間(jian)(jian)(jian)基礎(chu)(chu)(chu)信(xin)息平(ping)(ping)臺。以(yi)(yi)自然資源(yuan)調查監測(ce)(ce)數(shu)據為基礎(chu)(chu)(chu)，采用國家統(tong)一(yi)的(de)測(ce)(ce)繪基準和測(ce)(ce)繪系(xi)統(tong)，整合各類(lei)空(kong)(kong)間(jian)(jian)(jian)關聯數(shu)據，建(jian)立全(quan)國統(tong)一(yi)的(de)國土(tu)空(kong)(kong)間(jian)(jian)(jian)基礎(chu)(chu)(chu)信(xin)息平(ping)(ping)臺。以(yi)(yi)國土(tu)空(kong)(kong)間(jian)(jian)(jian)基礎(chu)(chu)(chu)信(xin)息平(ping)(ping)臺為底(di)板(ban)，結合各級各類(lei)國土(tu)空(kong)(kong)間(jian)(jian)(jian)規劃編(bian)制(zhi)，同步完成(cheng)縣級以(yi)(yi)上國土(tu)空(kong)(kong)間(jian)(jian)(jian)基礎(chu)(chu)(chu)信(xin)息平(ping)(ping)臺建(jian)設，實(shi)現(xian)主體功能區戰(zhan)略和各類(lei)空(kong)(kong)間(jian)(jian)(jian)管(guan)控要素精準落(luo)地，逐步形成(cheng)全(quan)國國土(tu)空(kong)(kong)間(jian)(jian)(jian)規劃“一(yi)張(zhang)圖”，推進政(zheng)府(fu)部門之間(jian)(jian)(jian)的(de)數(shu)據共(gong)享以(yi)(yi)及政(zheng)府(fu)與社會之間(jian)(jian)(jian)的(de)信(xin)息交互。
七(qi)、工作要求
（十(shi)九(jiu)）加(jia)強組(zu)織(zhi)領(ling)(ling)導。各地(di)區各部門要(yao)(yao)(yao)落(luo)實(shi)(shi)國(guo)(guo)家發(fa)展規(gui)劃提出的(de)國(guo)(guo)土(tu)空(kong)(kong)(kong)間開(kai)發(fa)保護要(yao)(yao)(yao)求，發(fa)揮(hui)國(guo)(guo)土(tu)空(kong)(kong)(kong)間規(gui)劃體系(xi)在國(guo)(guo)土(tu)空(kong)(kong)(kong)間開(kai)發(fa)保護中的(de)戰略(lve)引領(ling)(ling)和(he)剛(gang)性(xing)管控作用(yong)，統領(ling)(ling)各類(lei)空(kong)(kong)(kong)間利(li)用(yong)，把每一寸土(tu)地(di)都規(gui)劃得清(qing)清(qing)楚楚。堅持底(di)線(xian)思維，立足資(zi)源稟賦(fu)和(he)環境承載能(neng)力(li)，加(jia)快構建(jian)生態功(gong)(gong)能(neng)保障(zhang)基線(xian)、環境質量安全底(di)線(xian)、自(zi)然(ran)資(zi)源利(li)用(yong)上線(xian)。嚴格執行規(gui)劃，以(yi)釘(ding)釘(ding)子精神抓好貫徹落(luo)實(shi)(shi)，久久為(wei)功(gong)(gong)，做到一張藍圖(tu)干到底(di)。地(di)方各級黨委和(he)政府要(yao)(yao)(yao)充分認識建(jian)立國(guo)(guo)土(tu)空(kong)(kong)(kong)間規(gui)劃體系(xi)的(de)重大意(yi)義，主(zhu)(zhu)要(yao)(yao)(yao)負責(ze)人親(qin)自(zi)抓，落(luo)實(shi)(shi)政府組(zu)織(zhi)編制和(he)實(shi)(shi)施國(guo)(guo)土(tu)空(kong)(kong)(kong)間規(gui)劃的(de)主(zhu)(zhu)體責(ze)任，明確責(ze)任分工(gong)，落(luo)實(shi)(shi)工(gong)作經費(fei)，加(jia)強隊伍(wu)建(jian)設，加(jia)強監督(du)考(kao)核，做好宣傳教育。
（二(er)十(shi)）落(luo)實(shi)(shi)工(gong)作責(ze)任(ren)。各(ge)地(di)區各(ge)部(bu)門(men)(men)要(yao)加(jia)大對本行(xing)業本領域涉(she)及(ji)空(kong)間(jian)(jian)布局相關規(gui)(gui)劃(hua)(hua)(hua)的(de)指導(dao)、協(xie)調(diao)和(he)管(guan)理，制定(ding)(ding)有(you)利于國(guo)土(tu)(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)(hua)編制實(shi)(shi)施(shi)的(de)政(zheng)策，明確時間(jian)(jian)表和(he)路線圖，形成合(he)力。組織(zhi)、人(ren)事、審計等(deng)部(bu)門(men)(men)要(yao)研(yan)究將(jiang)國(guo)土(tu)(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)(hua)執行(xing)情況納入(ru)領導(dao)干部(bu)自(zi)然資(zi)(zi)源資(zi)(zi)產離任(ren)審計，作為黨(dang)政(zheng)領導(dao)干部(bu)綜合(he)考核(he)評價的(de)重要(yao)參考。紀檢(jian)監(jian)(jian)察(cha)機(ji)關要(yao)加(jia)強(qiang)監(jian)(jian)督(du)(du)(du)。發展改革、財政(zheng)、金融(rong)、稅務、自(zi)然資(zi)(zi)源、生態環境、住房城鄉(xiang)建設(she)、農業農村等(deng)部(bu)門(men)(men)要(yao)研(yan)究制定(ding)(ding)完善主(zhu)體(ti)功能區的(de)配套政(zheng)策。自(zi)然資(zi)(zi)源主(zhu)管(guan)部(bu)門(men)(men)要(yao)會同(tong)相關部(bu)門(men)(men)加(jia)快推進國(guo)土(tu)(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)(hua)立法(fa)工(gong)作。組織(zhi)部(bu)門(men)(men)在對地(di)方黨(dang)委和(he)政(zheng)府主(zhu)要(yao)負(fu)責(ze)人(ren)的(de)教育培訓中要(yao)注重提(ti)高其(qi)規(gui)(gui)劃(hua)(hua)(hua)意(yi)識。教育部(bu)門(men)(men)要(yao)研(yan)究加(jia)強(qiang)國(guo)土(tu)(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)(hua)相關學科建設(she)。自(zi)然資(zi)(zi)源部(bu)要(yao)強(qiang)化(hua)統籌協(xie)調(diao)工(gong)作，切實(shi)(shi)負(fu)起責(ze)任(ren)，會同(tong)有(you)關部(bu)門(men)(men)按照國(guo)土(tu)(tu)空(kong)間(jian)(jian)規(gui)(gui)劃(hua)(hua)(hua)體(ti)系(xi)總體(ti)框架，不斷完善制度設(she)計，抓(zhua)緊建立規(gui)(gui)劃(hua)(hua)(hua)編制審批體(ti)系(xi)、實(shi)(shi)施(shi)監(jian)(jian)督(du)(du)(du)體(ti)系(xi)、法(fa)規(gui)(gui)政(zheng)策體(ti)系(xi)和(he)技術標準體(ti)系(xi)，加(jia)強(qiang)專業隊伍建設(she)和(he)行(xing)業管(guan)理。自(zi)然資(zi)(zi)源部(bu)要(yao)定(ding)(ding)期對本意(yi)見(jian)貫(guan)徹落(luo)實(shi)(shi)情況進行(xing)監(jian)(jian)督(du)(du)(du)檢(jian)查，重大事項及(ji)時向黨(dang)中央、國(guo)務院(yuan)報(bao)告(gao)。
