全国土(tu)地利用总体规(gui)划纲要(yao)
（2006～2020年(nian)）调整方(fang)案
为更好地保障“十三五”时期经济社会发展，确保我国实有耕地数量稳定、质量不下降，提高土地利用节约集约水平，维护土地利用总体规划的严肃性、权威性和可操作性，根据第二次全国土地调查（以下简称二次调查二次(ci)cich）成果，经国务院同意，对《全国土地利用总体规划纲要（2006～2020年）》（以下简称《纲要》）进行调整完善。
一、指导思想
全(quan)面贯彻党的(de)十八大和(he)十八届三中、四中、五中全(quan)会(hui)精神，按照(zhao)“五位一体(ti)”总体(ti)布(bu)局(ju)和(he)“四个(ge)全(quan)面”战略布(bu)局(ju)，牢(lao)固树立创新、协(xie)调(diao)、绿色、开放、共享的(de)新发展(zhan)理(li)念(nian)，认(ren)真落(luo)实党中央、国务院决(jue)策部署，坚持最(zui)严格(ge)的(de)耕地(di)保护制度和(he)最(zui)严格(ge)的(de)节约(yue)用(yong)地(di)制度，通过(guo)土(tu)地(di)利用(yong)总体(ti)规划调(diao)整(zheng)，强化规划管理(li)和(he)用(yong)途管制，加快生(sheng)态文明建设，促进经济持续(xu)健康发展(zhan)和(he)社会(hui)和(he)谐稳定(ding)。
二(er)、调(diao)整原则
（一(yi)）总体稳定、局部微调(diao)。坚(jian)持《纲要》确定的指导原(yuan)(yuan)则(ze)、规划目标和主要任务基本(ben)不变，继(ji)续(xu)实(shi)施《纲要》确定的土地(di)分区(qu)引导原(yuan)(yuan)则(ze)、土地(di)整治重大工程和规划实(shi)施管(guan)理制(zhi)度。局部调整完善《纲要》，增(zeng)加耕地(di)保护任务，优化建设(she)用地(di)布局。
（二）应保(bao)尽(jin)保(bao)、量质并重。耕(geng)地(di)(di)是我国(guo)最为宝贵的(de)资(zi)源。既要守住(zhu)18亿亩(mu)耕(geng)地(di)(di)数量，更要保(bao)证耕(geng)地(di)(di)质量不(bu)下降，对二(er)次调(diao)查(cha)查(cha)明增加的(de)耕(geng)地(di)(di)，除根(gen)(gen)据国(guo)家(jia)统一部署纳入生态退耕(geng)规划(hua)和根(gen)(gen)据国(guo)家(jia)相关规划(hua)需要占用的(de)以(yi)(yi)(yi)外，均予以(yi)(yi)(yi)保(bao)护；优质耕(geng)地(di)(di)除实施国(guo)家(jia)重(zhong)大发展战(zhan)略、“十(shi)三五”重(zhong)点建设项目(mu)难以(yi)(yi)(yi)避让(rang)的(de)以(yi)(yi)(yi)外，均划(hua)入基(ji)本农(nong)田，实行永久(jiu)保(bao)护。
（三）节(jie)约(yue)集约(yue)、优化结构(gou)。按照坚定不移(yi)地(di)(di)(di)推进节约(yue)用(yong)地(di)(di)(di)的总(zong)要求，遏(e)制建(jian)设(she)(she)用(yong)地(di)(di)(di)过度外延扩张(zhang)，有效(xiao)控制建(jian)设(she)(she)用(yong)地(di)(di)(di)总(zong)量；统筹建(jian)设(she)(she)用(yong)地(di)(di)(di)增量与(yu)存量，合理(li)调整优化(hua)(hua)建(jian)设(she)(she)用(yong)地(di)(di)(di)结构和布局，降低工(gong)业用(yong)地(di)(di)(di)比例，优化(hua)(hua)国土空间(jian)开发格局；适当增加新增建(jian)设(she)(she)用(yong)地(di)(di)(di)规模，保(bao)障新型城镇化(hua)(hua)用(yong)地(di)(di)(di)需求。
（四）统筹兼顾、突(tu)出重点(dian)。正确处理开发与(yu)保护、当前与(yu)长远、局部与(yu)全局的关(guan)系(xi)，重(zhong)点(dian)做好耕(geng)地(di)(di)和(he)基(ji)本农田(tian)调整、建设用(yong)地(di)(di)结(jie)构与(yu)布局优(you)化(hua)，制定(ding)完善(shan)政策措(cuo)施，切实解决影响耕(geng)地(di)(di)保护、节(jie)约(yue)(yue)集约(yue)(yue)用(yong)地(di)(di)和(he)科学发展的突出(chu)问题。
（五）加强协调、充分衔接(jie)。坚(jian)持科(ke)学论证(zheng)、标准统一、民主决(jue)策，强化国民经(jing)济和社会(hui)发展规(gui)(gui)划、城乡规(gui)(gui)划和生(sheng)产力、交通布(bu)局等(deng)相关(guan)专(zhuan)项规(gui)(gui)划的(de)协调，做好其对(dui)下级规(gui)(gui)划的(de)控制，完(wan)善土地用途管制制度(du)。
三、调(diao)整的主要内容
（一）关于(yu)耕地调整。按照坚守18亿亩耕地保(bao)护红(hong)线，确保(bao)实有耕地数量稳(wen)定、质量不下降的要求，到(dao)2020年，全国耕地保(bao)有量为18.65亿亩。
（二(er)）关于基本农田调整(zheng)。按照(zhao)基(ji)本农田数(shu)量和布局基(ji)本稳定、优质耕地优先保护的原(yuan)则，规划期内，确(que)保全国15.46亿(yi)亩基(ji)本农田数(shu)量不减少，质量有提(ti)高。
（三）关于建设用地(di)调整。按照严守底线、调整结(jie)构、深化(hua)改革的思(si)路(lu)，严控增量，盘活存(cun)量，优(you)化(hua)结(jie)构，提(ti)升效率，切(qie)实提(ti)高城镇(zhen)建设(she)用地集约(yue)化(hua)程度(du)，到2020年，全(quan)国建设(she)用地总规(gui)模为4071.93万公顷(qing)（61079万亩）。
（四）关于土地(di)利(li)用结构和布局优化(hua)。
基(ji)(ji)本农田(tian)(tian)结构和(he)布(bu)局(ju)优(you)化(hua)。在落实(shi)基(ji)(ji)本农田(tian)(tian)保(bao)护任务和(he)保(bao)持现有基(ji)(ji)本农田(tian)(tian)布(bu)局(ju)总(zong)体稳(wen)定的(de)前提(ti)(ti)下，各地可依(yi)据二次(ci)调查和(he)耕地质(zhi)(zhi)量(liang)(liang)等别(bie)评定成(cheng)果(guo)，对基(ji)(ji)本农田(tian)(tian)布(bu)局(ju)作(zuo)适当(dang)调整。将(jiang)现状基(ji)(ji)本农田(tian)(tian)中林地、草地等非耕地调出，原则(ze)上25度以上坡耕地不(bu)作(zuo)为基(ji)(ji)本农田(tian)(tian)，不(bu)得将(jiang)各类生态用(yong)地划入基(ji)(ji)本农田(tian)(tian)，同时将(jiang)城市周边、道路沿线和(he)平原坝区应当(dang)划入而尚未划入的(de)优(you)质(zhi)(zhi)耕地划入基(ji)(ji)本农田(tian)(tian)，做到(dao)基(ji)(ji)本农田(tian)(tian)保(bao)护数(shu)量(liang)(liang)基(ji)(ji)本稳(wen)定、布(bu)局(ju)更加优(you)化(hua)，切(qie)实(shi)提(ti)(ti)高基(ji)(ji)本农田(tian)(tian)质(zhi)(zhi)量(liang)(liang)。
建(jian)(jian)(jian)(jian)(jian)设(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)结(jie)(jie)(jie)构(gou)和(he)布(bu)局优化(hua)。适(shi)应生(sheng)态文明建(jian)(jian)(jian)(jian)(jian)设(she)(she)、新型(xing)城(cheng)(cheng)镇化(hua)和(he)新农(nong)(nong)村(cun)建(jian)(jian)(jian)(jian)(jian)设(she)(she)的(de)(de)要(yao)求，各地(di)(di)(di)(di)要(yao)对建(jian)(jian)(jian)(jian)(jian)设(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)结(jie)(jie)(jie)构(gou)和(he)布(bu)局进(jin)(jin)(jin)行(xing)适(shi)当调整(zheng)，促(cu)进(jin)(jin)(jin)形(xing)成合(he)理(li)的(de)(de)区(qu)域、城(cheng)(cheng)乡用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)格(ge)(ge)局。一是(shi)以(yi)资(zi)源环(huan)境(jing)承载(zai)力评价为(wei)(wei)基础，加强(qiang)与(yu)新型(xing)城(cheng)(cheng)镇化(hua)、城(cheng)(cheng)镇体(ti)系、生(sheng)态环(huan)境(jing)等(deng)(deng)相关规(gui)(gui)划(hua)和(he)环(huan)境(jing)功能(neng)区(qu)划(hua)的(de)(de)协调衔接，认真(zhen)落实国家主体(ti)功能(neng)区(qu)环(huan)境(jing)政策，引导人口和(he)产(chan)(chan)(chan)业(ye)向资(zi)源环(huan)境(jing)承载(zai)力较高的(de)(de)区(qu)域集(ji)聚。二是(shi)坚持保(bao)(bao)护(hu)优先(xian)，建(jian)(jian)(jian)(jian)(jian)设(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)安(an)排(pai)要(yao)避让优质(zhi)耕(geng)地(di)(di)(di)(di)、河道滩(tan)地(di)(di)(di)(di)、优质(zhi)林地(di)(di)(di)(di)，严格(ge)(ge)保(bao)(bao)护(hu)水流、森林、山岭(ling)、草(cao)原、荒地(di)(di)(di)(di)、滩(tan)涂等(deng)(deng)自然(ran)生(sheng)态空(kong)间(jian)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)，合(he)理(li)安(an)排(pai)生(sheng)产(chan)(chan)(chan)、生(sheng)活(huo)、生(sheng)态用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)空(kong)间(jian)。三(san)是(shi)严格(ge)(ge)控制超大(da)(da)城(cheng)(cheng)市(shi)(shi)、特(te)(te)大(da)(da)城(cheng)(cheng)市(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)规(gui)(gui)模，合(he)理(li)安(an)排(pai)大(da)(da)中(zhong)小(xiao)城(cheng)(cheng)市(shi)(shi)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)，报(bao)国务院审批土地(di)(di)(di)(di)利(li)(li)用(yong)(yong)(yong)(yong)(yong)(yong)总(zong)体(ti)规(gui)(gui)划(hua)的(de)(de)超大(da)(da)和(he)特(te)(te)大(da)(da)城(cheng)(cheng)市(shi)(shi)中(zhong)心城(cheng)(cheng)区(qu)建(jian)(jian)(jian)(jian)(jian)设(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)规(gui)(gui)模原则上不(bu)增(zeng)加，以(yi)布(bu)局优化(hua)为(wei)(wei)主，促(cu)进(jin)(jin)(jin)串联式、组团式、卫星城(cheng)(cheng)式发展。京津冀、长三(san)角、珠三(san)角等(deng)(deng)区(qu)域逐年减少(shao)建(jian)(jian)(jian)(jian)(jian)设(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)增(zeng)量(liang)，推动(dong)产(chan)(chan)(chan)业(ye)结(jie)(jie)(jie)构(gou)向高端(duan)高效(xiao)发展，防治“城(cheng)(cheng)市(shi)(shi)病”。四是(shi)适(shi)应城(cheng)(cheng)乡统筹发展和(he)新农(nong)(nong)村(cun)建(jian)(jian)(jian)(jian)(jian)设(she)(she)需要(yao)，以(yi)农(nong)(nong)村(cun)土地(di)(di)(di)(di)综合(he)整(zheng)治为(wei)(wei)抓手，在具备条件的(de)(de)地(di)(di)(di)(di)方对农(nong)(nong)村(cun)建(jian)(jian)(jian)(jian)(jian)设(she)(she)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)按规(gui)(gui)划(hua)进(jin)(jin)(jin)行(xing)土地(di)(di)(di)(di)整(zheng)治、产(chan)(chan)(chan)权置换，促(cu)进(jin)(jin)(jin)农(nong)(nong)民(min)(min)住宅向集(ji)镇、中(zhong)心村(cun)集(ji)中(zhong)。五是(shi)合(he)理(li)调整(zheng)产(chan)(chan)(chan)业(ye)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)结(jie)(jie)(jie)构(gou)，保(bao)(bao)障水利(li)(li)、交(jiao)通、能(neng)源、通信、国防等(deng)(deng)重点基础设(she)(she)施用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)，优先(xian)安(an)排(pai)社会(hui)民(min)(min)生(sheng)、脱贫攻坚、战略(lve)性新兴产(chan)(chan)(chan)业(ye)，以(yi)及国家扶持的(de)(de)产(chan)(chan)(chan)业(ye)发展用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)，严禁为(wei)(wei)产(chan)(chan)(chan)能(neng)严重过剩行(xing)业(ye)新增(zeng)产(chan)(chan)(chan)能(neng)项(xiang)目(mu)安(an)排(pai)用(yong)(yong)(yong)(yong)(yong)(yong)地(di)(di)(di)(di)。
四、保障(zhang)措施
（一）自(zi)上而下完(wan)成(cheng)各级土(tu)地利(li)用总体规划调整完(wan)善工作。各省(sheng)（区(qu)、市(shi)(shi)）要按照(zhao)《纲(gang)要》调(diao)(diao)(diao)整(zheng)方案(an)确定(ding)的指标、布(bu)(bu)局(ju)(ju)优化原则和(he)有关政(zheng)策(ce)要求，以二次调(diao)(diao)(diao)查和(he)规(gui)(gui)划(hua)中期评估成(cheng)(cheng)果为基(ji)础，编制省(sheng)级土(tu)地(di)利用(yong)(yong)(yong)总(zong)(zong)(zong)(zong)体(ti)规(gui)(gui)划(hua)调(diao)(diao)(diao)整(zheng)方案(an)，确保(bao)上下级规(gui)(gui)划(hua)之间的协(xie)调(diao)(diao)(diao)衔接，其(qi)他主要指标如(ru)(ru)需调(diao)(diao)(diao)整(zheng)，于(yu)2016年底前(qian)报国(guo)务院(yuan)(yuan)审(shen)批。报国(guo)务院(yuan)(yuan)审(shen)批土(tu)地(di)利用(yong)(yong)(yong)总(zong)(zong)(zong)(zong)体(ti)规(gui)(gui)划(hua)的城(cheng)市(shi)(shi)，规(gui)(gui)划(hua)有关指标如(ru)(ru)需调(diao)(diao)(diao)整(zheng)，由各省(sheng)（区(qu)）人民政(zheng)府于(yu)2017年6月(yue)底前(qian)报国(guo)务院(yuan)(yuan)审(shen)批。其(qi)他各级土(tu)地(di)利用(yong)(yong)(yong)总(zong)(zong)(zong)(zong)体(ti)规(gui)(gui)划(hua)调(diao)(diao)(diao)整(zheng)方案(an)，由原规(gui)(gui)划(hua)审(shen)批机关审(shen)批。调(diao)(diao)(diao)整(zheng)工(gong)作完成(cheng)(cheng)后，以省(sheng)（区(qu)、市(shi)(shi)）为单(dan)位，将调(diao)(diao)(diao)整(zheng)结果报国(guo)土(tu)资(zi)源(yuan)部。城(cheng)市(shi)(shi)土(tu)地(di)利用(yong)(yong)(yong)总(zong)(zong)(zong)(zong)体(ti)规(gui)(gui)划(hua)调(diao)(diao)(diao)整(zheng)完善和(he)城(cheng)市(shi)(shi)总(zong)(zong)(zong)(zong)体(ti)规(gui)(gui)划(hua)要做好协(xie)调(diao)(diao)(diao)衔接，城(cheng)市(shi)(shi)建设用(yong)(yong)(yong)地(di)规(gui)(gui)模和(he)布(bu)(bu)局(ju)(ju)发生变化的，应当依法(fa)同(tong)步修改(gai)城(cheng)市(shi)(shi)总(zong)(zong)(zong)(zong)体(ti)规(gui)(gui)划(hua)。
（二）完善耕地保护政策和机制(zhi)。健全耕(geng)(geng)地(di)保(bao)护补偿制(zhi)度(du)，充分调动农民保(bao)护耕(geng)(geng)地(di)的(de)积极性(xing)与(yu)(yu)主(zhu)动性(xing)。加(jia)强(qiang)和(he)改进(jin)(jin)耕(geng)(geng)地(di)占(zhan)补平衡，综(zong)合运(yun)用(yong)(yong)多(duo)种政(zheng)策平台，多(duo)措并(bing)举，严(yan)格落(luo)实(shi)耕(geng)(geng)地(di)占(zhan)一补一、占(zhan)优(you)补优(you)，严(yan)格耕(geng)(geng)地(di)占(zhan)补平衡实(shi)施(shi)监(jian)管，坚决防止补充数量质量不到位的(de)问(wen)题。以(yi)提(ti)高耕(geng)(geng)地(di)产(chan)能(neng)为目标，总结(jie)地(di)方经(jing)验(yan)、完(wan)善政(zheng)策措施(shi)，全面(mian)推进(jin)(jin)建(jian)设(she)(she)占(zhan)用(yong)(yong)耕(geng)(geng)地(di)耕(geng)(geng)作层土壤剥离再(zai)利用(yong)(yong)工作。实(shi)施(shi)耕(geng)(geng)地(di)质量保(bao)护与(yu)(yu)提(ti)升(sheng)行动，加(jia)强(qiang)耕(geng)(geng)地(di)内(nei)在质量建(jian)设(she)(she)，实(shi)现(xian)“藏粮于地(di)”。要依据土地(di)利用(yong)(yong)总体规(gui)划，编制(zhi)实(shi)施(shi)各(ge)级土地(di)整(zheng)治规(gui)划，大力推进(jin)(jin)高标准农田建(jian)设(she)(she)。
（三(san)）健全土地节约集约利用机(ji)制。加(jia)强(qiang)相关(guan)规(gui)划(hua)与(yu)土(tu)地(di)(di)利(li)(li)(li)用(yong)(yong)总(zong)体(ti)(ti)规(gui)划(hua)的(de)协调衔接，相关(guan)规(gui)划(hua)在土(tu)地(di)(di)利(li)(li)(li)用(yong)(yong)上(shang)的(de)安排应符(fu)合(he)(he)土(tu)地(di)(di)利(li)(li)(li)用(yong)(yong)总(zong)体(ti)(ti)规(gui)划(hua)确定的(de)用(yong)(yong)地(di)(di)规(gui)模和(he)(he)总(zong)体(ti)(ti)布局。以二次调查成(cheng)果、土(tu)地(di)(di)利(li)(li)(li)用(yong)(yong)总(zong)体(ti)(ti)规(gui)划(hua)和(he)(he)城市(shi)（镇(zhen)）总(zong)体(ti)(ti)规(gui)划(hua)为基础，加(jia)快(kuai)划(hua)定永久基本(ben)农(nong)田、城市(shi)开发边界和(he)(he)生态保护(hu)红线，推(tui)进“多规(gui)合(he)(he)一(yi)”。加(jia)强(qiang)批而(er)未征(zheng)、征(zheng)而(er)未供(gong)(gong)土(tu)地(di)(di)的(de)盘活利(li)(li)(li)用(yong)(yong)，对近五年平(ping)均供(gong)(gong)地(di)(di)率小于60%的(de)市(shi)、县，除国家重(zhong)点项目(mu)和(he)(he)民生项目(mu)外，暂停(ting)安排新(xin)增建设用(yong)(yong)地(di)(di)指标。总(zong)结(jie)完善并(bing)推(tui)广有关(guan)经验模式(shi)，全(quan)面实行(xing)城镇(zhen)建设用(yong)(yong)地(di)(di)增加(jia)与(yu)农(nong)村建设用(yong)(yong)地(di)(di)减少相挂钩的(de)政策。建立城镇(zhen)低(di)效(xiao)用(yong)(yong)地(di)(di)再开发激励机制，规(gui)范推(tui)进工矿(kuang)废弃(qi)地(di)(di)复垦利(li)(li)(li)用(yong)(yong)和(he)(he)低(di)丘缓坡荒(huang)滩(tan)等未利(li)(li)(li)用(yong)(yong)地(di)(di)开发利(li)(li)(li)用(yong)(yong)，严禁随意侵占(zhan)或破坏林地(di)(di)、草地(di)(di)等生态用(yong)(yong)地(di)(di)。
（四）加(jia)大生(sheng)态保护力度。把节(jie)约放在(zai)优(you)先(xian)位置，进一步严格土(tu)地(di)(di)用途管制，控制耕(geng)地(di)(di)、林(lin)(lin)(lin)地(di)(di)、草地(di)(di)等转为建设用地(di)(di)，以最少(shao)的土(tu)地(di)(di)资源消(xiao)耗支撑经济社会(hui)持(chi)续发(fa)展。在(zai)土(tu)地(di)(di)利用总体(ti)规划实施管理中，把生(sheng)态(tai)文明建设放在(zai)突出位置，优(you)化国土(tu)空(kong)间(jian)开发(fa)格局，统(tong)筹协调(diao)城乡结构和空(kong)间(jian)布(bu)局，继(ji)续推进退耕(geng)还(hai)林(lin)(lin)(lin)还(hai)草、天(tian)然林(lin)(lin)(lin)保护等生(sheng)态(tai)建设工程，加快实施国土(tu)综(zong)合(he)整治，统(tong)筹考虑山水林(lin)(lin)(lin)田湖(hu)，按(an)照宜耕(geng)则(ze)耕(geng)、宜林(lin)(lin)(lin)则(ze)林(lin)(lin)(lin)、宜草则(ze)草、宜荒则(ze)荒的原(yuan)则(ze)，全(quan)面做好保护和修复，促进各类自(zi)然生(sheng)态(tai)系统(tong)安全(quan)稳定。
（五）同步更新规划(hua)数据库。各地(di)要(yao)结合土(tu)地(di)利(li)用总体规划调整完(wan)善，统筹安排、同步更新规划数(shu)据(ju)库(ku)，重点更新规划图层。做好质量核(he)查(cha)，确保(bao)耕(geng)地(di)保(bao)有量、基本农田保(bao)护面积、建设用地(di)规模等(deng)符合要(yao)求，做到(dao)图、数(shu)和(he)实地(di)相一(yi)致，保(bao)持规划数(shu)据(ju)库(ku)的(de)现(xian)势性。国土(tu)资(zi)源(yuan)部将组(zu)织技术力量，对各省(sheng)（区、市(shi)）规划数(shu)据(ju)库(ku)进行(xing)审核(he)，确保(bao)符合相关要(yao)求和(he)技术标准。
（六）加强(qiang)规划实施管理制度(du)建设。进(jin)一(yi)步协调研究相(xiang)关标准的衔接统一(yi)，建立土地利(li)用总体(ti)规划定期评估(gu)修改制度，完善编制和(he)(he)审批程(cheng)序，严格实施(shi)管理，提(ti)高规划的科学性(xing)和(he)(he)权威性(xing)，切(qie)实发挥(hui)规划对土地利(li)用的统筹管控作用。
