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class="ar_article"> <p style="text-indent: 2em;">今后國土空間管理全過程將采用統一的用地用海分類標準。近日實施的《國土空間調查、規劃、用途管制用地用海分類指南（試行）》，是實施國家自然資源統一管理、建立國土空間開發保護制度的一項重要基礎性標準，對于自然資源部履行“兩統一”和“多規合一”職責具有長遠的歷史意義。</p><p style="text-indent: 2em;">隨著《國土空間調查、規劃、用途管制用地用海分類指南（試行）》(以下簡稱《分類指南》)的實施，今后國土空間管理全過程將采用統一的用地用海分類標準。自然資源部副部長莊少勤指出，《分類指南》是實施國家自然資源統一管理、建立國土空間開發保護制度的一項重要基礎性標準，對于自然資源部履行“兩統一”和“多規合一”職責具有長遠的歷史意義。</p><p style="text-indent: 2em;">“由于各部門用地用海分類的管理目標不同、標準內涵不一、名詞術語不同，各自有各自的方言，國家層面沒有統一的用地用海分類標準，相當于沒有一個統一的‘普通話’?！鼻f少勤說，自然資源部決定將分類名稱改為《分類指南》，從打通“兩規”、打通陸海、到打通調查、規劃和用途管制等國土空間各環節管理，最終形成了覆蓋全域全要素全過程的統一的用地用海分類。</p><p style="text-indent: 2em;">據介紹，《分類指南》適用于國土調查、國土空間規劃到用途管制，并延伸到土地審批、不動產登記等工作。</p><p style="text-indent: 2em;">整合多項原標準</p><p style="text-indent: 2em;">據自然資源部總規劃師、新聞發言人吳海洋介紹，為履行統一行使全民所有自然資源資產所有者和統一行使所有國土空間用途管制和生態保護修復職責，加快建立自然資源統一調查監測評價和確權登記制度，建立“多規合一”的國土空間規劃體系并監督實施，自然資源部研究制定了《分類指南》?！斗诸愔改稀氛狭嗽锻恋乩矛F狀分類》《城市用地分類與規劃建設用地標準》《海域使用分類》等分類標準。</p><p style="text-indent: 2em;">莊少勤透露了一個細節：《分類指南》研究起草過程歷時兩年多，這足以說明《分類指南》制定的復雜性。</p><p style="text-indent: 2em;">莊少勤說，2018年，十九屆三中全會審議通過的《深化黨和國家機構改革方案》中明確了自然資源部“兩統一”和“多規合一”等重要職責?！皟山y一”即統一行使全民所有自然資源資產所有者職責，統一行使所有國土空間用途管制和生態保護修復職責，“具體職責有統一調查和確權登記，建立空間規劃體系并監督實施，推進‘多規合一’，實現土地利用規劃、城鄉規劃等有機融合”。莊少勤說，機構改革前，空間性規劃重疊沖突的重要原因之一就是基礎分類的不統一、不銜接。</p><p style="text-indent: 2em;">“自然資源部組建以后，就啟動了對相關標準的梳理和前期研究工作?！鼻f少勤指出，“多規合一”改革前，相關部門在各自業務領域對用地用海分類都有各自的標準和實踐基礎。城鄉規劃管理部門有《城市用地分類與規劃建設用地標準》，土地管理部門有《土地利用現狀分類》，海洋管理部門有《海域使用分類》，但國家層面沒有統一的用地用海分類標準。</p><p style="text-indent: 2em;">莊少勤說，《分類指南》體現了統一性。按照“兩統一”和“全生命周期管理”要求，《分類指南》“不是原有城鄉規劃、土地利用規劃和海洋功能區劃工作的簡單拼湊，而是在機構改革過程中實現業務融合、職能融合，真正發生了‘化學反應’”。</p><p style="text-indent: 2em;">“各類空間規劃特別是市縣國土空間總體規劃編制首先要使用新的分類，今后國土空間管理全過程將采用統一的用地用海分類標準?！鼻f少勤介紹說，《分類指南》貫徹生態優先、綠色發展為導向的高質量發展要求，堅持陸海統籌、城鄉統籌、地上地下空間統籌，設置了“濕地”“農業設施建設用地”“物流倉儲用地”等地類，體現了保護生態、保護耕地、保障新業態發展等要求。此外，《分類指南》設置了“留白用地”，鼓勵土地混合使用和空間復合利用，并為地方制定差別化細則留有空間。</p><p style="text-indent: 2em;">實現全過程統一</p><p style="text-indent: 2em;">據自然資源部國土空間規劃局局長張兵介紹，原《土地利用現狀分類》、原《城市用地分類與規劃建設用地標準》以及原《海域使用分類》都有自己的分類標準?！斗诸愔改稀吩谶@些分類基礎上進行了整合歸并，依據國土空間的主要配置利用方式、經營特點和覆蓋特征等因素，對國土空間用地用海類型進行歸納、劃分。</p><p style="text-indent: 2em;">《分類指南》實施后，這些分類實現了全過程統一，并適用于“國土調查、監測、統計、評價，國土空間規劃、用途管制、耕地保護、生態修復，土地審批、供應、整治、執法、登記及信息化管理等自然資源管理的全過程各環節工作”。張兵說，在具體使用中，不同環節的工作可以使用不同的分類層級，《分類指南》也對此作了原則性規定。</p><p style="text-indent: 2em;">據張兵介紹，《分類指南》實現國土空間的全域全要素覆蓋。首先，在全域實現陸海全覆蓋?！斗诸愔改稀纷裱懞＝y籌原則，將用海與用地分類作為整體考慮，將陸域國土空間的相關用途與海洋資源利用的相關用途在名稱上盡可能進行統籌和銜接；由于無居民海島多與周邊海域一并開發利用，其現行用途分類與海域基本一致，因此將海域和無居民海島視為整體進行分類。</p><p style="text-indent: 2em;">其次，在陸域實現生產、生活、生態等各類用地全覆蓋?！斗诸愔改稀返母?、園地、林地、草地等用地分類銜接土地利用現狀分類，并結合第三次全國國土調查的最新成果，對含義進行了修改完善，同時將“濕地”正式納入用地用海分類，體現生態空間保護和治理的重要性；建設用地設置了“居住用地”“公共管理與公共服務用地”“商業服務業用地”等一級類，涵蓋城鄉建設、基礎設施建設等各類用地的基本功能。</p><p style="text-indent: 2em;">對耕地嚴格管理</p><p style="text-indent: 2em;">“《分類指南》首次明確將‘農業設施建設用地’單獨列為一級類，下設‘鄉村道路用地’‘種植設施建設用地’‘畜禽養殖設施建設用地’和‘水產養殖設施建設用地’四個二級類，將破壞耕作層的農業設施相關用地單設一類?！睆埍f，《分類指南》切實防止耕地“非農化”“非糧化”，適應了目前農業農村發展的新形勢、新特點。</p><p style="text-indent: 2em;">就《分類指南》如何與《第三次全國國土調查耕地資源質量分類工作方案》（以下簡稱《三調分類》）有機銜接與融合統一，自然資源部自然資源調查監測司司長苗前軍說，在分類標準上，自然資源部堅持《分類指南》與《三調分類》的統籌銜接。</p><p style="text-indent: 2em;">自然資源部海域海島管理司司長高忠文說，《分類指南》中涉及海洋資源的分類充分體現陸海統籌原則，同時，進一步整合、優化了原有的海洋功能區劃、《海域使用分類》以及用島類型等分類體系，為用海用島管理搭建了統一的總體框架和分類基礎。</p><p style="text-indent: 2em;">自然資源部國土空間用途管制司副司長趙毓芳說，《分類指南》的制定和頒布，對自然資源部依法依規依標準組織實施用途管制意義重大?！斗诸愔改稀穼Τ鞘泻娃r村土地在地類上進行了細分，實現城鄉并列、同一口徑。將“農村宅基地”“農村社區服務設施用地”與“城鎮住宅用地”“城鎮社區服務設施用地”并列，統一都歸入“居住用地”一級類，形成完整的居住用地功能，有利于對國土空間實施全域全類型管理。</p><p style="text-indent: 2em;">趙毓芳說，《分類指南》將“鄉村道路”“種植設施建設用地”“畜禽養殖設施建設用地”“水產養殖設施建設用地”作為二級類，歸入“農業設施建設用地”一級類，并界定為“對地表耕作層造成破壞的”，更加符合農村的實際需要，更加有利于強化和規范農村建設用地的管理，對于防止“非農化”具有積極重要的意義。</p><p style="text-indent: 2em;">趙毓芳說，下一步，自然資源部將以《分類指南》為基礎，根據地類的主要功能制定差別化、精細化的用途管制措施。其中，對于耕地和具有重要生態功能的用地實行更加嚴格的管理，細化用途轉用管控規則。按照業態類型和用地特點等制定分類管理的措施，支持和規范農村產業發展用地；加強土地用途轉用的管理，完善“制度+技術”的監管體系。</p> </div> <section id="ar_fot"> <h1 class="fl highlight"><span>上一篇：</span><a href="/html/news/41.html" >生態環境部發布關于進一步規范城鎮（園區）污水處理環境管理的通知</a></h1> <h1 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