I 摘要 城乡建设用地减量作为当前北京市主动应对疏解非首都功能、引领高质量发展的重 要途径，对扭转当前聚集资源型发展模式，实现北京乃至京津冀向创新资源驱动转型、 高质量的发展具有重要推动作用。《北京城市总体规划（2016 年-2035 年）》明确提出 减量发展要求，在全市层面统筹制定了各区的发展蓝图和减量任务，围绕人口规模、用 地规模、建筑规模等核心指标进行规划引领，但在区级层面实施减量任务时又面临各种 实现问题，因此在区级层面上研究如何落实减量发展理念，理清问题根源形成机制对策， 对实现城乡减量实施落地具有重要指导意义。 随着国家自然资源机构改革序幕的拉开，各类空间规划在国土空间规划的统领下进 一步融合发展，“多规合一”背景下通过统筹多目标规划形成空间治理合力对遏制城乡 建设用地无序低效增长、促进减量提质发展提供了有利的体制支撑。本文通过文献研究、 实地调研、系统研究等多种研究方法结合 GIS 空间分析、结合案例实证分析、定性与定 量分析等分析方法，系统的梳理了当前减量发展的现实意义和面临的挑战。分析了当前 减量发展面临的底数不清、多规不融、管理体制机制存在交叉、重叠的问题与产生的原 因，基于明确的城乡建设用地管控目标与减量任务，从新时代背景下的全域空间管控和 生态优先的规划理念着手，针对门头沟区城乡建设用地的规模、结构、分布等现状情况， 系统的总结了门头沟区近年来城乡建设用地发展现状及减量发展面临的障碍及政策需 求。以问题为导向提出了建立基于“多规合一”的城乡建设用地减量实施体系，形成了 从技术体系、运行体系到规则体系的三大体系保障。以门头沟区城乡建设用地减量实践 为例从优化减量分解目标、搭建权责清晰、职责明确的工作底图、强化国土空间规划引 领等方面为基础，提出了符合门头沟区实际情况的减量实施方式与实施途径。本研究试 图从多个维度探索建设用地减量实施的对策，通过实践研究提出关于加强规划实施统筹 的政策机制、强化多层次管理机制、建立互为支撑的政策保障体系等对策建议。为进一 步创新完善城乡建设用地减量实施机制，加强新时期多规统筹，指导减量政策落地实施， 提供研究经验与案例参考。 关键词：多规合一；建设用地减量；机制对策。Abstract II Abstract Urban and rural construction land reduction as a important way to deal with the non-capital function alleviation and to lead high-quality development,has important implications for reversing the current resource aggregation development model and achieving the transformation towards innovation resources driving and high-quality development in Beijing and even beijing-tianjin-hebei. Beijing City Master Plan (2016-2035) made various development indexes of districts such as decrement task, population scale, land scale and building scale in municipalities,which has been clear about the development blueprint.But at the district level,there are various real issues to implement reduction task.Therefore, carrying out the decrement development idea,integrating ” multiple plans” target into resultant force and sorting out the problems and countermeasures are of importance in guiding realization of the implementation of reducing. As reform of national natural resource agency begins, various industries planning leads to further integration development under the heads of the national land space planning. Under the background of "Integrating multiple plans into one", integrating multi-objective planning into resultant force of space governance provides the beneficial system support for curbing disorder and inefficient growth of urban and rural construction land and promoting quality decreasing with quality improving development. In this paper, by using research method of qualitative and quantitative analysis, inductive analysis, literature research and combining theory with empirical case,analyse systematically the current practical significance and challenges of reducing development. Combined with issues that reducing development is faced with,such as unclarity of the base number,division of multiple plans and management system and mechanism problems and reasons, based on the specific urban and rural construction land control objectives and tasks,starting with planning compilation principle of global space control and ecological priority under the background of new era,in allusion to scale, structure and distribution status quo of urban and rural construction land in Mentougou district,this study summarizes systematically land use current situation of the development in recent years and urgency of reducing development and analyses systematically the policy requirements of it.Establishing urban and rural construction land reduction implementation system based on "Integrating multiple plans into one" is proposed problem-orientedly,then three security systems which include the technical system, the operating system and the rule system are formed. To take practice of urban and rural construction land reduction in Mentougou district as an example,in terms of optimizing decrement decomposition goal,constructing a base structure with clear rights and specific responsibilities and strengthening guide of the national land space planning,this paper proposes reducing implement ways and means accord with the actual situation of Mentougou district .Moreover,this study attempts to explore the countermeasures for the implementation of construction land reduction from multiple dimensions, and through practical research putsAbstract III forward suggestions on strengthening multi-level management mechanism, establishing a mutually supportive policy guarantee system and strengthening the overall planning and implementation. In order to further innovate and improve the implementation mechanism of urban and rural construction land reduction, strengthen the coordination of multiple regulations in the new era and guide the implementation of the reduction policy, this paper can provide practical experience and case reference. Key words: rules of multi-objective planning as a whole;reduction development;policy proposal.目 录 IV 目 录 摘要....................I ABSTRACT.............II 第 1 章 绪 论.......... 1 1.1 研究背景............................1 1.1.1 新型城镇化发展必要性..........................1 1.1.2 空间规划治理现实性..............................1 1.1.3 发展模式转型驱动性..............................2 1.2 研究目的与意义................2 1.2.1 研究目的.....................2 1.2.2 研究意义.....................2 1.3 研究框架............................ 3 1.4 研究方法............................ 4 1.5 研究技术路线....................4 1.6 国内外相关政策与案例研究.......................4 1.6.1 国内相关研究............4 1.6.2 国外相关研究............7 第 2 章 基本概念与相关研究..............9 2.1 基本概念............................9 2.1.1 多规合一....................9 2.1.2 城乡建设用地减量.9 2.2 相关基础理论..................9 2.2.1 精明增长理论............9 2.2.2 紧凑城市理论........10 2.2.3 循环经济理论........10目 录 V 第 3 章 门头沟区转型发展的迫切性与城乡建设用地减量面临的障碍..11 3.1 门头沟区现状用地情况分析.......................11 3.1.1 城乡建设用地结构...11 3.1.2 城乡建设用地布局.. 12 3.1.3 集体建设用地现状.. 12 3.1.4 采矿用地现状情况.. 13 3.1.5 近五年建设用地变化情况.....................14 3.1.6 非建设用地转换分析.............................15 3.1.7 城乡建设用地特征分析.........................16 3.2 门头沟转型发展迫切性分析..................... 17 3.2.1 经济发展过度依靠土地资源供给........17 3.2.2 用地增量蔓延导致城市病加剧............ 18 3.2.3 生态空间保护动力不足........................18 3.3 实施门头沟城乡建设用地减量面临的障碍..............................19 3.3.1 空间底图不统一.......19 3.3.2 区、镇、村三级减量机制亟需完善....19 3.3.3 减量实施信息缺乏共享.........................20 3.3.4 用地腾退保障机制尚不成熟.................20 第 4 章 基于“多规合一”的建设用地减量实施体系构建.......................21 4.1 减量实施体系构建的目的及原则............... 21 4.1.1 减量实施体系构建的目的.....................21 4.1.2 减量实施体系构建的原则.....................21 4.2 减量实施体系构建的要点............................21 4.3 三位一体减量实施体系构建........................22 4.3.1 搭建“多规合一”技术体系.................23 4.3.2 建立区、镇、村三级运行体系............ 25 4.3.3 建立减量规则管控体系.........................26目 录 VI 第 5 章 门头沟城乡建设