試點出爐背景——

中央有要求，現實有需要，地方有實踐

自(zi)(zi)然資源部(bu)國(guo)土(tu)(tu)(tu)空間(jian)生態修復司相關負責人回(hui)顧了(le)政策出臺的(de)(de)背景:從現實來(lai)看，近年來(lai)，隨著工業化、城(cheng)鎮化和(he)農業現代化的(de)(de)快速推進(jin)(jin)，自(zi)(zi)然資源和(he)生態環境(jing)約(yue)束日益凸顯。在同(tong)一(yi)(yi)(yi)(yi)空間(jian)上，鄉(xiang)村(cun)耕地碎片化、空間(jian)布局無序(xu)化、土(tu)(tu)(tu)地資源利用(yong)(yong)低效化、生態質量退化等多維度問(wen)題并存(cun)，單一(yi)(yi)(yi)(yi)要素、單一(yi)(yi)(yi)(yi)手(shou)(shou)段的(de)(de)土(tu)(tu)(tu)地整治模式已經難以完全(quan)解決綜(zong)合(he)(he)問(wen)題。需在國(guo)土(tu)(tu)(tu)空間(jian)規(gui)劃的(de)(de)引(yin)領下(xia)，進(jin)(jin)行全(quan)域規(gui)劃、整體設計、綜(zong)合(he)(he)治理(li)、多措并舉，用(yong)(yong)“內涵綜(zong)合(he)(he)、目標綜(zong)合(he)(he)、手(shou)(shou)段綜(zong)合(he)(he)、效益綜(zong)合(he)(he)”的(de)(de)綜(zong)合(he)(he)性整治手(shou)(shou)段進(jin)(jin)行整治。統籌農用(yong)(yong)地、低效建(jian)設用(yong)(yong)地和(he)生態保(bao)護修復，促(cu)進(jin)(jin)耕地保(bao)護和(he)土(tu)(tu)(tu)地節約(yue)集(ji)約(yue)利用(yong)(yong)，解決一(yi)(yi)(yi)(yi)二三(san)產融合(he)(he)發展用(yong)(yong)地，改善(shan)農村(cun)生態環境(jing)，助(zhu)推鄉(xiang)村(cun)振興(xing)。

該負責人說,在大(da)的(de)背景(jing)與現實需要(yao)的(de)推動(dong)(dong)下，近年(nian)來(lai)，各(ge)地(di)(di)(di)(di)(di)結合區域經(jing)濟(ji)社(she)會發(fa)(fa)(fa)展(zhan)狀況和(he)自然資源稟賦特點，探索推動(dong)(dong)土(tu)地(di)(di)(di)(di)(di)整(zheng)治(zhi)與多(duo)種要(yao)素的(de)綜(zong)合跨界融(rong)合，以(yi)“多(duo)目標定位、多(duo)模(mo)式實施、多(duo)元化投入”為(wei)特點的(de)土(tu)地(di)(di)(di)(di)(di)綜(zong)合整(zheng)治(zhi)逐(zhu)步形成，其中(zhong)浙江(jiang)、湖(hu)北省政府(fu)還先后(hou)在全省部(bu)署了土(tu)地(di)(di)(di)(di)(di)綜(zong)合整(zheng)治(zhi)工作。在浙江(jiang)、上(shang)海、四川等經(jing)濟(ji)相對(dui)發(fa)(fa)(fa)達地(di)(di)(di)(di)(di)區，土(tu)地(di)(di)(di)(di)(di)綜(zong)合整(zheng)治(zhi)側(ce)重(zhong)(zhong)服務城鄉(xiang)(xiang)融(rong)合發(fa)(fa)(fa)展(zhan)，保障農(nong)村(cun)新(xin)產業(ye)新(xin)業(ye)態發(fa)(fa)(fa)展(zhan)用地(di)(di)(di)(di)(di)，統籌產業(ye)發(fa)(fa)(fa)展(zhan)空間(jian)；在江(jiang)西(xi)、湖(hu)北、河(he)南等中(zhong)部(bu)地(di)(di)(di)(di)(di)區，土(tu)地(di)(di)(di)(di)(di)綜(zong)合整(zheng)治(zhi)側(ce)重(zhong)(zhong)助(zhu)推鄉(xiang)(xiang)村(cun)振興(xing)戰略實施，著重(zhong)(zhong)解決現代農(nong)業(ye)發(fa)(fa)(fa)展(zhan)、空心村(cun)整(zheng)治(zhi)問(wen)題，促進中(zhong)部(bu)崛起；在西(xi)部(bu)貧(pin)困地(di)(di)(di)(di)(di)區，土(tu)地(di)(di)(di)(di)(di)綜(zong)合整(zheng)治(zhi)側(ce)重(zhong)(zhong)服務國家脫貧(pin)攻堅(jian)戰略，能夠較好解決耕地(di)(di)(di)(di)(di)保護、易地(di)(di)(di)(di)(di)扶貧(pin)搬遷、農(nong)村(cun)基礎設施建設、產業(ye)扶貧(pin)用地(di)(di)(di)(di)(di)等問(wen)題。各(ge)地(di)(di)(di)(di)(di)已經(jing)積累了一(yi)定經(jing)驗，探索了

鎖定目標任務——

農用地整理，建設用地整理，鄉村生態保護修復

“全域土地(di)綜(zong)合(he)整(zheng)治是以科學規劃為前提，以鄉鎮為基本實施單元，整(zheng)體開展農用地(di)、建(jian)設用地(di)整(zheng)理和鄉村生態(tai)保護修復(fu)等，對(dui)閑置、利用低效(xiao)、生態(tai)退化及環境破壞(huai)的區域實施國土空間(jian)綜(zong)合(he)治理的活動。”該負責人(ren)從定義出發闡釋了全域土地(di)綜(zong)合(he)整(zheng)治的目標任務。

在農(nong)(nong)(nong)用地(di)(di)(di)(di)整(zheng)理方(fang)面，更加突出了耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)“三位一體(ti)”保護(hu)，適應(ying)發展(zhan)現代(dai)農(nong)(nong)(nong)業和適度規模經營的需要，統(tong)籌(chou)推(tui)進低效(xiao)林草地(di)(di)(di)(di)和園(yuan)地(di)(di)(di)(di)整(zheng)理、農(nong)(nong)(nong)田基(ji)礎(chu)設施建設、現有耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)提(ti)質改(gai)造(zao)等，傳承傳統(tong)農(nong)(nong)(nong)耕(geng)(geng)(geng)(geng)文化，增加耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)數(shu)量，提(ti)高耕(geng)(geng)(geng)(geng)地(di)(di)(di)(di)質量，改(gai)善農(nong)(nong)(nong)田生態。在建設用地(di)(di)(di)(di)整(zheng)理方(fang)面，統(tong)籌(chou)農(nong)(nong)(nong)民住宅建設、產(chan)業發展(zhan)、公共服(fu)務，基(ji)礎(chu)設施等各(ge)類建設用地(di)(di)(di)(di)，有序開展(zhan)農(nong)(nong)(nong)村(cun)(cun)宅基(ji)地(di)(di)(di)(di)、工(gong)礦廢棄地(di)(di)(di)(di)以及其(qi)他(ta)低效(xiao)閑置建設用地(di)(di)(di)(di)整(zheng)理，優化農(nong)(nong)(nong)村(cun)(cun)建設用地(di)(di)(di)(di)布(bu)局(ju)結構，提(ti)升農(nong)(nong)(nong)村(cun)(cun)建設用地(di)(di)(di)(di)使用效(xiao)益和集約化水平(ping)，支持農(nong)(nong)(nong)村(cun)(cun)新(xin)(xin)產(chan)業新(xin)(xin)業態融合發展(zhan)用地(di)(di)(di)(di)。

“特別要強調(diao)的(de)是，《通知(zhi)》首次(ci)在土地綜合(he)整(zheng)治(zhi)(zhi)(zhi)任(ren)務中提(ti)出了(le)‘鄉(xiang)村生(sheng)態(tai)(tai)保(bao)(bao)護(hu)(hu)修復(fu)’，要將土地綜合(he)整(zheng)治(zhi)(zhi)(zhi)與生(sheng)態(tai)(tai)保(bao)(bao)護(hu)(hu)修復(fu)相結合(he)，形成(cheng)新的(de)功(gong)能。按(an)照山(shan)水林田湖(hu)草整(zheng)體保(bao)(bao)護(hu)(hu)、系統修復(fu)、綜合(he)治(zhi)(zhi)(zhi)理的(de)要求，結合(he)農村人(ren)居環境(jing)整(zheng)治(zhi)(zhi)(zhi)，優化調(diao)整(zheng)生(sheng)態(tai)(tai)用地布局，保(bao)(bao)護(hu)(hu)和恢復(fu)鄉(xiang)村生(sheng)態(tai)(tai)功(gong)能，維護(hu)(hu)生(sheng)物多樣(yang)性，提(ti)高防御自然(ran)災害(hai)能力，保(bao)(bao)持鄉(xiang)村自然(ran)景觀。”該(gai)負責人(ren)強調(diao)。

全域(yu)土地綜(zong)合(he)(he)整治試點與村莊規(gui)劃該如何銜接?該負責人表示，全域(yu)土地綜(zong)合(he)(he)整治是實施規(gui)劃的(de)平臺(tai)和抓手，需要(yao)開(kai)展(zhan)全域(yu)土地綜(zong)合(he)(he)整治的(de)，必須編制村莊規(gui)劃，兩(liang)者要(yao)實行充分銜接，不能搞“兩(liang)張皮”。

一是(shi)(shi)(shi)(shi)在編制鄉(xiang)鎮國土空(kong)間規劃時，就要進行統籌安排(pai)，按照宜(yi)農(nong)(nong)則(ze)農(nong)(nong)、宜(yi)建則(ze)建、宜(yi)留(liu)則(ze)留(liu)、宜(yi)整(zheng)則(ze)整(zheng)的(de)(de)原則(ze)，明確(que)全域(yu)土地綜(zong)合(he)整(zheng)治(zhi)(zhi)(zhi)的(de)(de)目標任務(wu)、整(zheng)治(zhi)(zhi)(zhi)區(qu)(qu)域(yu)、主(zhu)要內(nei)容、空(kong)間布(bu)局(ju)等(deng)。整(zheng)治(zhi)(zhi)(zhi)區(qu)(qu)域(yu)可以(yi)是(shi)(shi)(shi)(shi)鄉(xiang)鎮的(de)(de)全部或者部分村(cun)莊，該整(zheng)的(de)(de)整(zheng)，不用整(zheng)的(de)(de)不整(zheng)。二是(shi)(shi)(shi)(shi)要將各項整(zheng)治(zhi)(zhi)(zhi)任務(wu)納入村(cun)莊規劃。由鄉(xiang)鎮政(zheng)府組織編制整(zheng)治(zhi)(zhi)(zhi)區(qu)(qu)域(yu)內(nei)的(de)(de)村(cun)莊規劃，將整(zheng)治(zhi)(zhi)(zhi)任務(wu)、指標和布(bu)局(ju)要求落(luo)實到(dao)具(ju)體地塊，并(bing)明確(que)組織管理、實施時序、項目安排(pai)、資(zi)金估(gu)算和投資(zi)來源等(deng)。三是(shi)(shi)(shi)(shi)要突出耕(geng)(geng)地保護。通(tong)過全域(yu)土地綜(zong)合(he)整(zheng)治(zhi)(zhi)(zhi)，確(que)保整(zheng)治(zhi)(zhi)(zhi)區(qu)(qu)域(yu)內(nei)耕(geng)(geng)地質量有提升、新增(zeng)耕(geng)(geng)地面積不少于原有耕(geng)(geng)地面積的(de)(de)5%。

啟動政策杠桿——

合理調整永久基本農田，盤活鄉村存量建設用地

該負責人(ren)表示，此次試點工(gong)作最(zui)大(da)(da)的亮點是在(zai)已有政策基礎(chu)上，賦予(yu)了(le)地方兩大(da)(da)政策杠桿(gan)。

一條是(shi)強化耕地保護(hu)(hu)，允許合(he)理調(diao)整(zheng)(zheng)(zheng)永(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)。一是(shi)強調(diao)“不動是(shi)常態，動是(shi)例(li)外”的(de)(de)導向(xiang)要(yao)(yao)求。涉(she)及永(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)調(diao)整(zheng)(zheng)(zheng)的(de)(de)，必須確(que)保整(zheng)(zheng)(zheng)治區域(yu)(yu)內新(xin)增(zeng)永(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)面(mian)積不少于調(diao)整(zheng)(zheng)(zheng)面(mian)積的(de)(de)5%。整(zheng)(zheng)(zheng)治區域(yu)(yu)完成整(zheng)(zheng)(zheng)治任務(wu)并通過驗收后，更新(xin)完善永(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)數(shu)據庫。二是(shi)與《自(zi)然資(zi)源部(bu) 農(nong)業(ye)農(nong)村部(bu)關于加(jia)強和改進(jin)永(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)保護(hu)(hu)工作的(de)(de)通知》進(jin)行銜接(jie)，對整(zheng)(zheng)(zheng)治區域(yu)(yu)內涉(she)及永(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)調(diao)整(zheng)(zheng)(zheng)的(de)(de)，要(yao)(yao)按照數(shu)量有(you)增(zeng)加(jia)、質量有(you)提升(sheng)、布局(ju)集中連片、總(zong)體保持穩(wen)定的(de)(de)原則，統籌“三線”劃(hua)定，編(bian)制整(zheng)(zheng)(zheng)治區域(yu)(yu)永(yong)久(jiu)基(ji)本(ben)農(nong)田(tian)調(diao)整(zheng)(zheng)(zheng)方(fang)案，由省級自(zi)然資(zi)源主管(guan)部(bu)門(men)會同農(nong)業(ye)農(nong)村主管(guan)部(bu)門(men)審核(he)同意(yi)后，納入村莊規劃(hua)予以實施。

另一(yi)條是盤(pan)活(huo)鄉(xiang)村(cun)(cun)存量建(jian)(jian)設用(yong)地(di)(di)(di),增(zeng)添(tian)鄉(xiang)村(cun)(cun)發(fa)展活(huo)力。一(yi)是增(zeng)強鄉(xiang)村(cun)(cun)用(yong)地(di)(di)(di)保(bao)障力度(du)，通過全(quan)(quan)域(yu)土(tu)地(di)(di)(di)綜合(he)整治(zhi)騰(teng)退(tui)的(de)建(jian)(jian)設用(yong)地(di)(di)(di)，在保(bao)障項目區內農民安置(zhi)(zhi)、農村(cun)(cun)基(ji)礎(chu)設施建(jian)(jian)設、公益事業等(deng)用(yong)地(di)(di)(di)的(de)前(qian)提下，重點(dian)(dian)用(yong)于農村(cun)(cun)一(yi)二(er)三產(chan)業融合(he)發(fa)展，促進產(chan)業振興，增(zeng)強鄉(xiang)村(cun)(cun)自我造血功(gong)能；二(er)是顯(xian)化(hua)農村(cun)(cun)土(tu)地(di)(di)(di)資產(chan)價值，允許節余的(de)建(jian)(jian)設用(yong)地(di)(di)(di)指標，按照城鄉(xiang)建(jian)(jian)設用(yong)地(di)(di)(di)增(zeng)減掛鉤政策(ce)使用(yong)，并將流轉范圍從縣域(yu)擴大到省域(yu)，促進土(tu)地(di)(di)(di)要素科(ke)學配(pei)置(zhi)(zhi)、合(he)理(li)流動，為(wei)鄉(xiang)村(cun)(cun)振興提供強有力資金支持(chi)。另外，為(wei)鼓勵各(ge)地(di)(di)(di)積極開展全(quan)(quan)域(yu)土(tu)地(di)(di)(di)綜合(he)整治(zhi)試點(dian)(dian)工作，部對試點(dian)(dian)工作給予一(yi)定的(de)計(ji)劃指標支持(chi)。

“各地(di)開(kai)展試(shi)點(dian)時，要加強組(zu)織(zhi)領導，樹(shu)立底線(xian)思(si)維，增強風險意(yi)識，從制(zhi)(zhi)(zhi)度(du)入手，從嚴管理，防止(zhi)各種錯誤發生。”該負(fu)責人表示，各地(di)在確(que)定試(shi)點(dian)時，要綜合(he)考(kao)慮(lv)對全(quan)域整(zheng)治(zhi)(zhi)(zhi)(zhi)有(you)(you)政府推動(dong)、有(you)(you)整(zheng)治(zhi)(zhi)(zhi)(zhi)潛(qian)力、有(you)(you)整(zheng)治(zhi)(zhi)(zhi)(zhi)需求、有(you)(you)群眾基礎的(de)地(di)區(qu)，合(he)理選擇試(shi)點(dian)鄉鎮。要按照集聚提(ti)升、城郊融合(he)、特(te)色(se)保護、搬遷(qian)撤并的(de)思(si)路，因(yin)地(di)制(zhi)(zhi)(zhi)宜、分類推進全(quan)域土地(di)綜合(he)整(zheng)治(zhi)(zhi)(zhi)(zhi)。要堅決防止(zhi)以整(zheng)治(zhi)(zhi)(zhi)(zhi)之名(ming)行調整(zheng)永久基本農田(tian)之實、片面(mian)追求增加指標(biao)搞大拆大建、侵犯農民(min)權益影響社會穩(wen)定、盲目投資增加政府隱形債務等(deng)不良傾向。要明確(que)全(quan)域土地(di)綜合(he)整(zheng)治(zhi)(zhi)(zhi)(zhi)負(fu)面(mian)清單，嚴格控制(zhi)(zhi)(zhi)未(wei)利用地(di)開(kai)墾，嚴格保護具(ju)有(you)(you)歷史(shi)文化價值(zhi)的(de)建筑(zhu)。禁(jin)止(zhi)違背(bei)農民(min)意(yi)愿搞大拆大建，禁(jin)止(zhi)破壞(huai)生態環境砍(kan)樹(shu)挖山填湖、占用耕地(di)搞人造景觀、破壞(huai)鄉村風貌(mao)和(he)歷史(shi)文脈等(deng)。