珍惜土地資源 建設美麗長沙

——寫(xie)在第28個全(quan)國土地日來臨(lin)之際

市(shi)委副書記、市(shi)長、湖南湘(xiang)江新區(qu)黨工委書記

胡忠雄

要堅決守住(zhu)耕(geng)地(di)(di)保(bao)護(hu)底(di)(di)(di)線(xian)。耕(geng)地(di)(di)是關乎(hu)未來的“生存線(xian)”，決不能(neng)有任(ren)何閃失。必須(xu)按(an)照國(guo)家(jia)(jia)“谷物基本自給，口糧絕對(dui)安全”的要求，扎緊(jin)耕(geng)地(di)(di)保(bao)護(hu)的籬笆(ba)，確(que)保(bao)耕(geng)地(di)(di)數量(liang)不減、質量(liang)不降。要像保(bao)護(hu)生命一樣保(bao)護(hu)耕(geng)地(di)(di)，切實(shi)加強耕(geng)地(di)(di)管理，落(luo)實(shi)占補平(ping)衡(heng)的各項措施，死(si)死(si)守住(zhu)長(chang)沙(sha)401.32萬(wan)畝(mu)耕(geng)地(di)(di)、348.45萬(wan)畝(mu)基本農田的底(di)(di)(di)線(xian)，保(bao)護(hu)好我們賴(lai)以(yi)生存的家(jia)(jia)底(di)(di)(di)，真正對(dui)長(chang)沙(sha)人民負(fu)責、對(dui)國(guo)家(jia)(jia)負(fu)責、對(dui)黨負(fu)責。

要堅(jian)(jian)決守住生(sheng)(sheng)態(tai)(tai)環境(jing)(jing)底(di)線。國(guo)(guo)土(tu)是生(sheng)(sheng)態(tai)(tai)文明(ming)建(jian)設的(de)(de)空間載體，“生(sheng)(sheng)態(tai)(tai)線”是國(guo)(guo)土(tu)資(zi)源(yuan)的(de)(de)保護(hu)紅線。必(bi)須(xu)有序推進生(sheng)(sheng)態(tai)(tai)國(guo)(guo)土(tu)建(jian)設，讓綠色發展之路越(yue)走越(yue)寬。要堅(jian)(jian)持人口(kou)資(zi)源(yuan)環境(jing)(jing)相均衡(heng)、經濟社會生(sheng)(sheng)態(tai)(tai)效益相統一，落(luo)實生(sheng)(sheng)態(tai)(tai)環境(jing)(jing)損害賠償制度，有效修復土(tu)地生(sheng)(sheng)態(tai)(tai)系(xi)統，擴大自然生(sheng)(sheng)態(tai)(tai)空間。特(te)別(bie)是落(luo)實國(guo)(guo)土(tu)資(zi)源(yuan)環境(jing)(jing)生(sheng)(sheng)態(tai)(tai)紅線管控制度，嚴守資(zi)源(yuan)消耗上限、環境(jing)(jing)質(zhi)量底(di)線，有效管控各類經濟社會活動(dong)，筑牢國(guo)(guo)土(tu)生(sheng)(sheng)態(tai)(tai)安(an)全防線。

要(yao)(yao)堅決守住空間(jian)(jian)管(guan)制(zhi)(zhi)(zhi)(zhi)(zhi)底(di)線(xian)。國(guo)(guo)土(tu)空間(jian)(jian)用途(tu)管(guan)制(zhi)(zhi)(zhi)(zhi)(zhi)是(shi)國(guo)(guo)土(tu)資源的(de)“保障(zhang)線(xian)”。要(yao)(yao)以管(guan)制(zhi)(zhi)(zhi)(zhi)(zhi)體制(zhi)(zhi)(zhi)(zhi)(zhi)機(ji)制(zhi)(zhi)(zhi)(zhi)(zhi)創新推動國(guo)(guo)土(tu)空間(jian)(jian)治理能(neng)力(li)提升(sheng)，按照生態優(you)先、區(qu)域統籌(chou)、分(fen)級分(fen)類、協同(tong)共治的(de)原則，合理確(que)(que)定城鎮、農(nong)業、生態空間(jian)(jian)，劃定生態保護紅線(xian)、永(yong)久基本(ben)農(nong)田(tian)、城鎮開發(fa)邊界，科學編制(zhi)(zhi)(zhi)(zhi)(zhi)空間(jian)(jian)規(gui)劃，將土(tu)地用途(tu)管(guan)制(zhi)(zhi)(zhi)(zhi)(zhi)擴大(da)到所有自然生態空間(jian)(jian)，確(que)(que)保依法保護的(de)生態空間(jian)(jian)面積不減少，生態功能(neng)不降低，生態服務保障(zhang)能(neng)力(li)逐漸提高。

要(yao)科(ke)學確(que)定(ding)用(yong)(yong)(yong)地(di)(di)增量(liang)。建設(she)用(yong)(yong)(yong)地(di)(di)需(xu)求是(shi)(shi)無限的(de)(de)，而增量(liang)空間是(shi)(shi)有(you)限的(de)(de)。必須堅(jian)持建設(she)用(yong)(yong)(yong)地(di)(di)規(gui)劃與(yu)經濟社(she)(she)會(hui)發(fa)展規(gui)劃相(xiang)協同。一方(fang)(fang)面(mian)，要(yao)用(yong)(yong)(yong)好用(yong)(yong)(yong)活用(yong)(yong)(yong)地(di)(di)政策，通過認真(zhen)抓好改革試點、大力推進城(cheng)鄉建設(she)用(yong)(yong)(yong)地(di)(di)增減掛鉤等一切行之有(you)效的(de)(de)手段，獲取更多(duo)用(yong)(yong)(yong)地(di)(di)指(zhi)標(biao)支持，豐富(fu)土地(di)(di)資源(yuan)供給(gei)；另(ling)一方(fang)(fang)面(mian)，要(yao)對標(biao)全市經濟社(she)(she)會(hui)發(fa)展目標(biao)和項目建設(she)要(yao)求，科(ke)學測(ce)算每年的(de)(de)建設(she)用(yong)(yong)(yong)地(di)(di)增量(liang)，科(ke)學規(gui)劃中(zhong)期和中(zhong)長期用(yong)(yong)(yong)地(di)(di)邊界，確(que)保以有(you)限的(de)(de)土地(di)(di)供給(gei)最大限度滿足建設(she)發(fa)展用(yong)(yong)(yong)地(di)(di)的(de)(de)需(xu)求。

要精準優化用(yong)地(di)(di)(di)結構。實行有保有壓(ya)差(cha)別化供(gong)地(di)(di)(di)，將(jiang)產業(ye)(ye)用(yong)地(di)(di)(di)項(xiang)目擺在第一(yi)位，優先保障重點(dian)產業(ye)(ye)用(yong)地(di)(di)(di)需(xu)求。工業(ye)(ye)用(yong)地(di)(di)(di)供(gong)應根據產業(ye)(ye)生(sheng)命周期(qi)、企業(ye)(ye)發展(zhan)狀況等(deng)實行差(cha)別化土地(di)(di)(di)出(chu)讓(rang)，或(huo)采取長期(qi)租(zu)賃(lin)、先租(zu)后讓(rang)、租(zu)讓(rang)結合等(deng)方式提供(gong)用(yong)地(di)(di)(di)。同時，科學(xue)安(an)排基礎(chu)設施用(yong)地(di)(di)(di)、民生(sheng)用(yong)地(di)(di)(di)、商住用(yong)地(di)(di)(di)，推動均衡發展(zhan)。

要統籌提升用(yong)(yong)地(di)(di)(di)效益。推進土(tu)地(di)(di)(di)節(jie)約集約利(li)用(yong)(yong)，通過規范管理、結構調整、技術進步實(shi)現節(jie)約，以土(tu)地(di)(di)(di)利(li)用(yong)(yong)方式轉變倒逼城市發(fa)展轉型。引導工業(ye)園區、工業(ye)企業(ye)聚焦主(zhu)導產(chan)業(ye)、特(te)色產(chan)業(ye)優化用(yong)(yong)地(di)(di)(di)布局，根據項目(mu)建設需要確定各(ge)類用(yong)(yong)地(di)(di)(di)；對行政劃撥(bo)、工業(ye)彈性出讓、純商(shang)業(ye)市場用(yong)(yong)地(di)(di)(di)等(deng)進行綜合分析，增大(da)用(yong)(yong)地(di)(di)(di)容積率，做到地(di)(di)(di)盡其利(li)、地(di)(di)(di)盡其用(yong)(yong)，探索形成以土(tu)地(di)(di)(di)資(zi)源高效率利(li)用(yong)(yong)推動經(jing)濟高質(zhi)量發(fa)展的(de)長沙路(lu)徑。

要突出盤活閑(xian)(xian)置(zhi)存量(liang)用(yong)(yong)地(di)(di)(di)(di)。土(tu)(tu)地(di)(di)(di)(di)閑(xian)(xian)置(zhi)是最大的資源浪費。要堅持分類(lei)處(chu)置(zhi)，實行“一(yi)地(di)(di)(di)(di)一(yi)策(ce)”“一(yi)宗地(di)(di)(di)(di)一(yi)個班子”一(yi)抓到底，打好閑(xian)(xian)置(zhi)土(tu)(tu)地(di)(di)(di)(di)處(chu)置(zhi)攻堅戰。著力加強(qiang)已供土(tu)(tu)地(di)(di)(di)(di)項目(mu)的跟(gen)蹤(zong)服務和督(du)查，督(du)促項目(mu)盡快開(kai)建達(da)產，加強(qiang)“批、供、用(yong)(yong)、補(bu)、查”全過(guo)程(cheng)綜(zong)合監管，堅決杜絕“一(yi)邊項目(mu)等地(di)(di)(di)(di)、一(yi)邊土(tu)(tu)地(di)(di)(di)(di)閑(xian)(xian)置(zhi)曬太陽”現象，有效釋放土(tu)(tu)地(di)(di)(di)(di)的顯性(xing)效應，讓“沉睡的土(tu)(tu)地(di)(di)(di)(di)”活起來。

要(yao)有序盤活城(cheng)(cheng)(cheng)市(shi)(shi)建設用地(di)(di)(di)。存量土地(di)(di)(di)的(de)(de)改(gai)造(zao)(zao)和(he)提升(sheng)成為(wei)未來(lai)城(cheng)(cheng)(cheng)市(shi)(shi)發展(zhan)的(de)(de)重(zhong)中(zhong)之(zhi)重(zhong)，許多城(cheng)(cheng)(cheng)市(shi)(shi)土地(di)(di)(di)利(li)用出現拐(guai)點(dian)，存量用地(di)(di)(di)規模(mo)超過新(xin)增用地(di)(di)(di)。要(yao)將以(yi)城(cheng)(cheng)(cheng)市(shi)(shi)更新(xin)為(wei)主要(yao)內(nei)容的(de)(de)存量土地(di)(di)(di)二(er)次開(kai)發作(zuo)為(wei)新(xin)一輪城(cheng)(cheng)(cheng)市(shi)(shi)建設和(he)發展(zhan)的(de)(de)重(zhong)要(yao)抓手、作(zuo)為(wei)解決城(cheng)(cheng)(cheng)市(shi)(shi)用地(di)(di)(di)的(de)(de)主要(yao)途(tu)徑，在(zai)土地(di)(di)(di)開(kai)發模(mo)式、土地(di)(di)(di)開(kai)發用途(tu)、土地(di)(di)(di)出讓執行上大膽創新(xin)和(he)探索，突出提升(sheng)城(cheng)(cheng)(cheng)市(shi)(shi)建設發展(zhan)土地(di)(di)(di)利(li)用效率(lv)。同時，要(yao)持續在(zai)棚(peng)戶(hu)區改(gai)造(zao)(zao)、城(cheng)(cheng)(cheng)中(zhong)村改(gai)造(zao)(zao)中(zhong)大力(li)實施“四增兩減”，實現土地(di)(di)(di)和(he)房屋空間的(de)(de)最(zui)佳使(shi)用。

要加(jia)(jia)快盤活(huo)低效工(gong)業(ye)(ye)用地。激(ji)勵城鎮低效用地“二次開發”，鼓(gu)勵各類建(jian)(jian)設項目優先開發空閑(xian)、廢棄和(he)低效利用土(tu)(tu)地，推(tui)(tui)行工(gong)礦廢棄地復墾利用，引導(dao)各企業(ye)(ye)聯合(he)建(jian)(jian)設總部大(da)(da)樓、研發基地、培訓機構(gou)等，鼓(gu)勵各工(gong)業(ye)(ye)企業(ye)(ye)聯合(he)建(jian)(jian)設公共(gong)基礎設施、多層廠房，大(da)(da)力(li)提(ti)升產(chan)業(ye)(ye)集中度(du)和(he)土(tu)(tu)地畝產(chan)效益。特別是大(da)(da)力(li)推(tui)(tui)行“騰籠換(huan)鳥”，將(jiang)一些占(zhan)地面積大(da)(da)、產(chan)出效益低的項目置換(huan)出去，將(jiang)投入產(chan)出率(lv)高的項目引進來，千方百計增加(jia)(jia)可用地量。

要抓好(hao)國家試(shi)點改革(ge)。抓好(hao)試(shi)點改革(ge)對(dui)全局發(fa)(fa)展意義(yi)重大(da)。要認真(zhen)謀劃深入抓好(hao)各項改革(ge)試(shi)點，積極推廣成功經驗(yan)帶(dai)動面上改革(ge)，特別是總結和推廣瀏陽市農村(cun)土地征收、集體經營性建(jian)設用(yong)地入市、農村(cun)宅(zhai)基地制度改革(ge)試(shi)點經驗(yan)，管好(hao)用(yong)好(hao)農村(cun)土地資源，喚(huan)醒“沉睡的資本”，有(you)效激發(fa)(fa)土地潛能。

要深化土地(di)(di)(di)制度(du)(du)改革(ge)。統籌做好(hao)耕(geng)地(di)(di)(di)、宅(zhai)基(ji)地(di)(di)(di)、建設(she)用(yong)(yong)地(di)(di)(di)三篇文(wen)章，積極(ji)推(tui)進耕(geng)地(di)(di)(di)所有權(quan)、承(cheng)包權(quan)、經(jing)營(ying)權(quan)“三權(quan)分置”，創新轉包、租賃、股份合作和(he)托管等(deng)流(liu)轉形式，促進耕(geng)地(di)(di)(di)適(shi)度(du)(du)向(xiang)新型農業經(jing)營(ying)主體集(ji)中(zhong)；適(shi)度(du)(du)放活宅(zhai)基(ji)地(di)(di)(di)使用(yong)(yong)權(quan)，探(tan)索(suo)用(yong)(yong)宅(zhai)基(ji)地(di)(di)(di)、農房(fang)入股和(he)抵押貸款，打通宅(zhai)基(ji)地(di)(di)(di)由資(zi)源變(bian)(bian)(bian)資(zi)產、資(zi)產變(bian)(bian)(bian)資(zi)本、資(zi)本變(bian)(bian)(bian)資(zi)金、資(zi)金變(bian)(bian)(bian)現金的通道，使“死資(zi)產”變(bian)(bian)(bian)成“活收益”；探(tan)索(suo)建立集(ji)體經(jing)營(ying)性(xing)建設(she)用(yong)(yong)地(di)(di)(di)入市(shi)制度(du)(du)，鼓勵(li)農村集(ji)體經(jing)濟組織依法以集(ji)體經(jing)營(ying)性(xing)建設(she)用(yong)(yong)地(di)(di)(di)使用(yong)(yong)權(quan)入股、聯營(ying)等(deng)形式與他人共同開展生產經(jing)營(ying)，壯大(da)集(ji)體經(jing)濟，促進農民(min)增(zeng)收。

要推(tui)(tui)進權(quan)屬登(deng)(deng)記(ji)(ji)改(gai)革。全面推(tui)(tui)進自然(ran)資(zi)(zi)源統一(yi)(yi)確權(quan)登(deng)(deng)記(ji)(ji)，落實(shi)好(hao)國務(wu)(wu)院關(guan)于推(tui)(tui)進全民所有(you)(you)自然(ran)資(zi)(zi)源有(you)(you)償使用制度改(gai)革的各項措施(shi)，全面提(ti)升自然(ran)資(zi)(zi)源保護(hu)和合理(li)利(li)用水平，為美麗(li)長(chang)沙建(jian)設提(ti)供保障。進一(yi)(yi)步深化不動產(chan)統一(yi)(yi)登(deng)(deng)記(ji)(ji)制度改(gai)革，推(tui)(tui)動登(deng)(deng)記(ji)(ji)服務(wu)(wu)窗(chuang)口(kou)向鄉鎮延伸，開(kai)展農(nong)村“房地一(yi)(yi)體”的宅(zhai)基地和集體建(jian)設用地確權(quan)登(deng)(deng)記(ji)(ji)發證(zheng)，穩(wen)步將農(nong)村土地承包經營權(quan)納入(ru)統一(yi)(yi)登(deng)(deng)記(ji)(ji)，探索有(you)(you)效管制方(fang)式方(fang)法，更好(hao)地守護(hu)綠水青山，加快建(jian)設更加天藍、水凈、地綠的美麗(li)長(chang)沙。