邵阳市北塔区城乡建设用地增减挂钩项目区2008年度实施方案

邵阳市北塔区城乡建设用地增减挂钩项目区2008年度实施方案承担单位：邵阳市北塔区商业局编制单位：湖南省国土资源规划院编制日期：2008年11月目录前言·····················································································1第一章方案编制指导思想、依据和原则··········································2一、指导思想······································································2二、编制依据······································································2三、编制原则······································································3第二章方案编制过程及主要内容···················································4一、方案编制过程································································4二、方案主要内容································································4第三章项目区概况···································································6一、区域概况······································································6二、项目区划定···································································6三、拆旧区基本情况·····························································8四、建新区基本情况·····························································8五、项目区土地利用总体规划相关情况·····································8第四章项目区建设条件分析及规模确定········································9一、拆旧区复垦条件分析及规模确定········································9二、建新区规模确定····························································10第五章项目拆旧区复垦方案······················································11一、拆旧区复垦目标····························································11二、拆旧区规划原则····························································11三、拆旧区规划布局及工程规划·············································11第六章挂钩周转指标的使用和归还计划·······································14一、挂钩周转指标的使用计划················································14二、挂钩周转指标的归还计划················································14第七章投资预算和资金筹措······················································15一、投资预算·····································································15二、资金筹措·····································································18第八章土地权属现状和权属调整方案··········································18一、土地权属现状·······························································19二、土地权属调整方案·························································19第九章方案评价·····································································21一、方案的合法性评价·························································21二、方案的合理性评价·························································21三、方案的可行性评价·························································22第十章方案实施保障措施·························································23一、加强统一领导，设立专门机构··········································23二、严格项目管理，制定专项制度··········································23三、建立项目实施资金保障体系·············································23四、建立挂钩项目管理信息系统·············································23五、加强项目实施后的管护工作·············································24—1—前言为了贯彻落实《国务院关于深化改革严格土地管理的决定》（国发〔2004〕28号），2005年国土资源部研究制定了《关于规范城镇建设用地增加与农村建设用地减少相挂钩试点工作的意见》（国土资源〔2005〕207号），并在部分地区展开了试点工作。城镇建设用地增加与农村建设用地减少相挂钩，是指依据土地利用总体规划，将若干拟复垦为农用地、耕地的农村建设用地地块（即拆旧区）和拟用于城镇建设的地块（即建新区）共同组成建新拆旧项目区（简称项目区），通过建新拆旧和土地复垦，最终实现项目区内建设用地总量不增加，耕地面积不减少、质量不降低，用地布局更合理的土地整理工作。开展这项工作，对优化城乡用地结构和布局，促进土地资源的集约高效和持续利用，缓解建设用地供需矛盾，促进新农村建设具有重要意义。省国土资源厅根据国土资源部有关精神和相关法律法规，结合全省实际，也下发了《关于开展城乡建设用地增减挂钩工作的通知》，要求各地调查可用于城乡建设用地增减挂钩的拆旧区土地资源潜力，并编制挂钩项目区实施方案。根据相关文件精神，邵阳市北塔区国土资源局积极开展了这项工作。在充分调查县域城乡建设用地增减挂钩潜力的基础上，确定部分废弃工矿用地作为挂钩项目拆旧区，同时确定相对应的建新区，并纳入邵阳市2008年度挂钩计划。同时委托湖南省国土资源规划院编制项目区实施方案。—2—第一章方案编制指导思想、依据和原则一、指导思想坚持以落实科学发展观、构建和谐社会为统领，从促进土地资源的集约利用和可持续利用出发，按照科学规划、分步实施的原则，通过积极推进农村建设用地整理，盘活利用农村存量建设用地；贯彻“十分珍惜、合理利用土地和切实保护耕地”的基本国策，以增强土地综合承载能力为重点，协调人口、资源、环境和经济社会发展的关系，努力提高土地利用的社会、经济和生态效益。二、编制依据（一）国家有关法律、法规、标准、文件1、《中华人民共和国土地管理法》；2、《中华人民共和国水土保持法》；3、《中华人民共和国土地管理法实施条例》；4、《国务院关于深化改革严格土地管理的决定》（国发〔2004〕28号）；5、《土地开发整理标准》（TD／T1011～1013－2000）；6、《国土资源部关于印发关于规范城镇建设用地增加与农村建设用地减少相挂钩试点工作的意见的通知》（国土资发〔2005〕207号）；7、《国土资源部关于印发城乡建设用地增减挂钩试点管理办法的通知》（国土资发［2008］138号）；8、《县级土地开发整理规划编制要点》（国土资发〔2002〕215号）。（二）湖南省相关法规、文件1、《湖南省土地管理条例》；2、《湖南省土地利用年度计划管理实施办法》；3、湖南省国土资源厅《关于开展城乡建设用地增减挂钩工作的通知》（代拟稿）；4、湖南省国土资源厅《城乡建设用地增减挂钩拆旧区土地整理复垦项—3—目管理细则》。（三）邵阳市北塔区相关规划1、《邵阳市北塔区土地利用总体规划（1997～2010年）》；2、《邵阳市北塔区茶元头乡土地利用总体规划（1997～2010年）》；3、《邵阳市北塔区土地利用总体规划大纲（2006～2020年）》；4、《邵阳市北塔区土地开发整理规划（2001～2010年）》。三、编制原则1、符合规划的原则。建新拆旧区域必须符合土地利用总体规划，要因地制宜、统筹安排、合理布局挂钩项目区。2、保护耕地的原则。拆旧地块应优先整理复垦为耕地，确保耕地质量，并及时组织耕种。3、增减协调原则。挂钩项目区建新地块的总面积不得大于拆旧地块总面积，拆旧地块整理出的耕地不得小于建新地块占用的耕地面积。4、节约集约用地的原则。挂钩项目区建新地块中建设用地集约利用水平应高于现有存量建设用地，并与城乡统筹和新农村建设相结合。5、保护农民利益的原则。挂钩项目区的设立和实施要尊重群众意愿，切实维护集体和农民土地合法权益。—4—第二章方案编制过程及主要内容一、方案编制过程本次方案的编制在程序上经历了准备阶段、分析研究阶段、举行听证阶段、规划决策阶段和提交成果阶段等五个阶段。（一）准备阶段该阶段主要是人员组织、实地踏勘与资料收集。接到任务后，省国土资源规划院组织经验丰富的技术人员组成工作队伍，并制定了详细的工作方案和技术方案。按照制定的方案，技术人员对部分项目区进行实地踏勘，并对照有关资料，重点了解项目区所在地的自然条件、土地利用现状、交通区位等，并深入了解当地的社会经济状况，收集编制方案所需的资料。（二）分析研究阶段在对准备阶段收集的资料进行分析和整理的基础上，深入研究项目区土地利用现状，详细分析项目区的土地复垦潜力、投资渠道等，并提出复垦的目标和整理方针。（三）举行听证会根据有关精神，邵阳市北塔区人民政府组织相关部门以及项目区所涉及镇人民政府、被征地村民代表参与的听证会，详细听取他们对本次方案编制的意见，并获得他们的认可。（四）方案决策阶段该阶段主要是对项目的可行性进行分析，对备选方案比较论证，选定拆旧区，并制定初步设计方案，进行投资预算和整理效益的分析。（五）提交成果阶段该阶段主要是提交图件成果与文本成果。图件成果主要是挂钩方案的现状图和实施规划图，文本成果主要包括实施方案文本及相关附件。二、方案主要内容根据相关要求，实施方案包含的主要内容有：项目区拆旧区复垦条件—5—分析、拆