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　　為保障軌道交(jiao)通建設項目的順利(li)推(tui)進(jin)(jin)，規范解決軌道交(jiao)通沿(yan)線(xian)用地控制、管線(xian)遷移、房屋征收(shou)以(yi)及資(zi)金投入(ru)、使(shi)用管理和(he)相(xiang)關單位配合等一系(xi)列問題(ti)，經市有關部(bu) 門三年多的努力(li)，《青島市軌道交(jiao)通建設管理辦(ban)(ban)法(fa)》（以(yi)下簡稱(cheng)《辦(ban)(ban)法(fa)》）已經頒布，將于2014年3月(yue)1日(ri)起(qi)正式施行(xing)。現就《辦(ban)(ban)法(fa)》中相(xiang)關內容(rong)進(jin)(jin)行(xing)詳(xiang)細解讀(du)：

解讀(du)一：

　　重在規范(fan)建(jian)設(she)行為

　　明確(que)各項防(fang)護規定(ding) 

　　設(she)(she)計(ji)(ji)施(shi)工(gong)保護(hu)：《辦法(fa)》分別對初步(bu)設(she)(she)計(ji)(ji)和施(shi)工(gong)中應當采(cai)取的(de)保護(hu)措施(shi)提出了要求，“軌(gui)道(dao)(dao)交通(tong)建(jian)設(she)(she)項(xiang)目初步(bu)設(she)(she)計(ji)(ji)前，軌(gui)道(dao)(dao)交通(tong)建(jian)設(she)(she)單位應當對軌(gui)道(dao)(dao)交通(tong)建(jian)設(she)(she)項(xiang)目 周邊已(yi)有(you)建(jian)筑物、構筑物、管線(xian)、市政基礎設(she)(she)施(shi)等(deng)進行調(diao)查和記錄”，并規定建(jian)設(she)(she)期間采(cai)取措施(shi)，防止和減少(shao)施(shi)工(gong)對沿(yan)線(xian)相關設(she)(she)施(shi)的(de)影響。

　　周(zhou)邊環境(jing)保護：結合其(qi)他(ta)地(di)(di)鐵城市相關經驗，地(di)(di)鐵線(xian)路(lu)經過的大多(duo)是人(ren)員眾多(duo)、道(dao)(dao)路(lu)狹窄、商戶云(yun)集、居民(min)住(zhu)宅(zhai)密布的地(di)(di)區，不可(ke)避(bi)免的會對(dui)周(zhou)邊商戶和居民(min)住(zhu)戶 造(zao)成(cheng)一(yi)定程度(du)的影響，我(wo)市也(ye)不例外(wai)。如何最(zui)大限度(du)地(di)(di)把地(di)(di)鐵建(jian)設對(dui)周(zhou)邊居民(min)住(zhu)宅(zhai)、商戶經營(ying)的影響降至(zhi)最(zui)低，也(ye)是《辦法》重點考慮的事項。因(yin)此(ci)，《辦法》規 定，軌道(dao)(dao)交通建(jian)設期間，軌道(dao)(dao)交通施工(gong)單(dan)位對(dui)因(yin)建(jian)設工(gong)程施工(gong)可(ke)能(neng)造(zao)成(cheng)損(sun)害的毗鄰(lin)建(jian)筑物(wu)、構(gou)筑物(wu)和地(di)(di)下管線(xian)等，應當采取專(zhuan)項防護措(cuo)施。

　　道(dao)路(lu)交(jiao)通(tong)保護：軌道(dao)交(jiao)通(tong)建(jian)設(she)期(qi)間，軌道(dao)交(jiao)通(tong)建(jian)設(she)單(dan)位應(ying)當結合工(gong)程(cheng)對(dui)交(jiao)通(tong)、周(zhou)邊(bian)居民(min)出行(xing)(xing)(xing)以及重(zhong)要(yao)場所、建(jian)筑物(wu)和構筑物(wu)等的影響，提(ti)出占路(lu)調(diao)流(liu)方案(an)，報(bao)市(shi)城 鄉建(jian)設(she)行(xing)(xing)(xing)政主管(guan)部(bu)(bu)(bu)(bu)門(men)。市(shi)城鄉建(jian)設(she)行(xing)(xing)(xing)政主管(guan)部(bu)(bu)(bu)(bu)門(men)應(ying)當組(zu)織公(gong)安(an)交(jiao)通(tong)管(guan)理(li)等部(bu)(bu)(bu)(bu)門(men)，對(dui)占路(lu)調(diao)流(liu)方案(an)進行(xing)(xing)(xing)核(he)(he)查和研究(jiu)，并按程(cheng)序批準后實施(shi)。建(jian)設(she)單(dan)位在召集相關參建(jian)單(dan) 位制定占路(lu)調(diao)流(liu)方案(an)時，遵循在保證施(shi)工(gong)的前提(ti)下(xia)，最大(da)限度地(di)減少建(jian)設(she)對(dui)交(jiao)通(tong)影響的原則進行(xing)(xing)(xing)相關工(gong)作，保證發揮道(dao)路(lu)通(tong)行(xing)(xing)(xing)的最大(da)效能。制定好道(dao)路(lu)調(diao)流(liu)方案(an)后， 還(huan)要(yao)報(bao)市(shi)城鄉建(jian)設(she)行(xing)(xing)(xing)政主管(guan)部(bu)(bu)(bu)(bu)門(men)，由其會同(tong)公(gong)安(an)交(jiao)通(tong)管(guan)理(li)部(bu)(bu)(bu)(bu)門(men)進行(xing)(xing)(xing)核(he)(he)查研究(jiu)，按程(cheng)序批準。

解讀二(er)： 

　　設置控制保護區(qu)域

　　保護施工乘坐(zuo)安(an)全 

　　為保(bao)障(zhang)軌(gui)道(dao)(dao)交(jiao)(jiao)通(tong)(tong)建(jian)設(she)(she)以(yi)及今后運營安全，國(guo)家住(zhu)建(jian)部和(he)質監總局發布的(de)(de)《城市軌(gui)道(dao)(dao)交(jiao)(jiao)通(tong)(tong)建(jian)設(she)(she)項目管理規范》規定(ding)，應在軌(gui)道(dao)(dao)交(jiao)(jiao)通(tong)(tong)建(jian)設(she)(she)中設(she)(she)置(zhi)規劃(hua)控(kong)(kong)制(zhi)區(qu)和(he)特(te)別保(bao)護(hu)(hu) 區(qu)。我市借鑒國(guo)內(nei)其(qi)他地(di)鐵城市的(de)(de)經驗，采(cai)用了控(kong)(kong)制(zhi)保(bao)護(hu)(hu)區(qu)和(he)特(te)別保(bao)護(hu)(hu)區(qu)的(de)(de)概念。其(qi)中，控(kong)(kong)制(zhi)保(bao)護(hu)(hu)區(qu)是(shi)軌(gui)道(dao)(dao)交(jiao)(jiao)通(tong)(tong)建(jian)設(she)(she)中具有特(te)定(ding)用途的(de)(de)需要保(bao)護(hu)(hu)和(he)控(kong)(kong)制(zhi)范圍的(de)(de)區(qu)域(yu)， 控(kong)(kong)制(zhi)保(bao)護(hu)(hu)區(qu)內(nei)設(she)(she)置(zhi)特(te)別保(bao)護(hu)(hu)區(qu)，是(shi)保(bao)護(hu)(hu)軌(gui)道(dao)(dao)交(jiao)(jiao)通(tong)(tong)工程(cheng)結構(gou)安全的(de)(de)最小要求距離，原則上禁(jin)止一切會影響到結構(gou)安全的(de)(de)建(jian)設(she)(she)活(huo)動(dong)。

　　設(she)(she)施設(she)(she)備安(an)全(quan)：《辦(ban)法(fa)》規(gui)定設(she)(she)立軌道交通(tong)(tong)控制(zhi)保(bao)(bao)護(hu)區(qu)和(he)特別保(bao)(bao)護(hu)區(qu)，并分別規(gui)定控制(zhi)保(bao)(bao)護(hu)區(qu)和(he)特別保(bao)(bao)護(hu)區(qu)的保(bao)(bao)護(hu)范圍和(he)具體的保(bao)(bao)護(hu)措施；對在(zai)保(bao)(bao)護(hu)區(qu)內進行作(zuo)(zuo)業 的，《辦(ban)法(fa)》規(gui)定，作(zuo)(zuo)業單位(wei)應當在(zai)施工前會(hui)同軌道交通(tong)(tong)建設(she)(she)單位(wei)制(zhi)定軌道交通(tong)(tong)設(she)(she)施保(bao)(bao)護(hu)方案。目的就是在(zai)與(yu)其他建設(she)(she)行為(wei)互不影響(xiang)的前提下，保(bao)(bao)證地鐵(tie)(tie)設(she)(she)施的安(an) 全(quan)，進而保(bao)(bao)障社會(hui)公(gong)眾在(zai)乘坐地鐵(tie)(tie)時的安(an)全(quan)。

　　同時，由于地鐵建(jian)設(she)(she)的特(te)(te)殊性(xing)，《辦法》借(jie)鑒外(wai)地經驗(yan)，按照(zhao)優先發展的原(yuan)則(ze)，規(gui)定“軌(gui)(gui)道(dao)交(jiao)(jiao)(jiao)通(tong)控制保護區和特(te)(te)別保護區內的各項(xiang)建(jian)設(she)(she)，應(ying)當服從(cong)和配合軌(gui)(gui)道(dao)交(jiao)(jiao)(jiao)通(tong) 建(jian)設(she)(she)。新建(jian)市政(zheng)基(ji)礎(chu)設(she)(she)施(shi)(shi)、人防工程與(yu)軌(gui)(gui)道(dao)交(jiao)(jiao)(jiao)通(tong)建(jian)設(she)(she)相沖突的，相關(guan)部門應(ying)當按照(zhao)軌(gui)(gui)道(dao)交(jiao)(jiao)(jiao)通(tong)建(jian)設(she)(she)優先的原(yuan)則(ze)進行協調和處理(li)。”這(zhe)一點也(ye)是基(ji)于地鐵設(she)(she)施(shi)(shi)安全性(xing)考慮 進行規(gui)定的。 

　　居(ju)民房屋安全(quan)(quan)：為(wei)特別保護居(ju)民房屋的安全(quan)(quan)，《辦法》規定，因軌道交通(tong)建設(she)需要進(jin)入建筑(zhu)物、構筑(zhu)物或(huo)(huo)設(she)施內(nei)進(jin)行檢測和(he)鑒定的，應(ying)當(dang)提前告知產權人(ren)或(huo)(huo)者(zhe)使用(yong) 人(ren)，產權人(ren)或(huo)(huo)者(zhe)使用(yong)人(ren)應(ying)當(dang)予以配合，同時因建設(she)工程(cheng)施工可能造成(cheng)損害(hai)的毗鄰建筑(zhu)物、構筑(zhu)物和(he)地下管線(xian)等，應(ying)當(dang)采取專(zhuan)項防護措施。

解(jie)讀三：

　　協調各方(fang)支持配(pei)合

　　充分(fen)保障公(gong)共利益

　　軌道(dao)交通(tong)(tong)建(jian)(jian)設(she)(she)涉及方方面面，需要各方面力量的配合支(zhi)持，《辦(ban)法》規定，任(ren)何單位和個(ge)人不得阻礙或者影(ying)響軌道(dao)交通(tong)(tong)建(jian)(jian)設(she)(she)。為強力推進(jin)地(di)鐵建(jian)(jian)設(she)(she)進(jin)程，市(shi)政(zheng)府(fu)在(zai) 政(zheng)府(fu)層面成立了市(shi)地(di)鐵工(gong)程建(jian)(jian)設(she)(she)指揮部，承擔(dan)統籌(chou)領導職能，負責軌道(dao)交通(tong)(tong)建(jian)(jian)設(she)(she)的組織、指揮、協調、監督工(gong)作。同時要求，市(shi)城鄉建(jian)(jian)設(she)(she)、發展改革、規劃、國(guo)土資(zi) 源、公安、財政(zheng)、審計、安全生(sheng)產(chan)監管、交通(tong)(tong)、人防、城管執法等部門(men)應當按照職責做好軌道(dao)交通(tong)(tong)建(jian)(jian)設(she)(she)相關工(gong)作。

　　公共交(jiao)(jiao)通(tong)(tong)銜接：軌道交(jiao)(jiao)通(tong)(tong)是城市(shi)發展到一定階段(duan)的(de)產物，與(yu)早期(qi)的(de)城市(shi)規劃、土(tu)地利(li)用規劃、交(jiao)(jiao)通(tong)(tong)規劃、城市(shi)功能(neng)區規劃存在(zai)不同步、不和諧性(xing)，但客觀上又要求(qiu) 與(yu)相關規劃相銜接。為(wei)此，《辦法》明(ming)確要求(qiu)，編制軌道交(jiao)(jiao)通(tong)(tong)規劃應(ying)當合理(li)安(an)排(pai)軌道交(jiao)(jiao)通(tong)(tong)不同線(xian)路(lu)之間(jian)，軌道交(jiao)(jiao)通(tong)(tong)與(yu)城市(shi)道路(lu)、鐵(tie)路(lu)、公路(lu)、航空、港口和其他公共 交(jiao)(jiao)通(tong)(tong)之間(jian)的(de)換乘(cheng)銜接。這就需要各交(jiao)(jiao)通(tong)(tong)運輸單位與(yu)地鐵(tie)密切配(pei)合，規劃好、銜接好、建設(she)好相應(ying)的(de)功能(neng)設(she)施。

　　公(gong)共用(yong)(yong)地(di)(di)(di)(di)控(kong)(kong)制：為推進軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)可持續發展，同時考慮(lv)到軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)屬(shu)于公(gong)益(yi)性事業，建(jian)設(she)(she)(she)(she)用(yong)(yong)地(di)(di)(di)(di)和(he)資源開(kai)(kai)發用(yong)(yong)地(di)(di)(di)(di)應當依法予以(yi)保(bao)(bao)障。特別是(shi)防(fang)止用(yong)(yong)地(di)(di)(di)(di)控(kong)(kong)制、儲(chu)備(bei)不(bu)(bu)及 時導致的(de)(de)影響(xiang)建(jian)設(she)(she)(she)(she)工期等(deng)問題，《辦(ban)(ban)法》參(can)照寧波、重慶等(deng)地(di)(di)(di)(di)經驗，對軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)建(jian)立土地(di)(di)(di)(di)專項儲(chu)備(bei)和(he)劃撥制度，預留軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)設(she)(she)(she)(she)施(shi)用(yong)(yong)地(di)(di)(di)(di)以(yi)及換乘樞紐、公(gong)交(jiao)車站、停 車場等(deng)公(gong)用(yong)(yong)設(she)(she)(she)(she)施(shi)用(yong)(yong)地(di)(di)(di)(di)，軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)設(she)(she)(she)(she)施(shi)用(yong)(yong)地(di)(di)(di)(di)與(yu)其他(ta)用(yong)(yong)地(di)(di)(di)(di)不(bu)(bu)能分割用(yong)(yong)地(di)(di)(di)(di)出(chu)讓(rang)等(deng)問題進行規范。為保(bao)(bao)證軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)建(jian)設(she)(she)(she)(she)土地(di)(di)(di)(di)使(shi)用(yong)(yong)，《辦(ban)(ban)法》確立了軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)建(jian)設(she)(she)(she)(she)使(shi)用(yong)(yong)地(di)(di)(di)(di)面以(yi)下(xia) 的(de)(de)空間,不(bu)(bu)受其上(shang)(shang)方土地(di)(di)(di)(di)使(shi)用(yong)(yong)權(quan)的(de)(de)限制的(de)(de)原(yuan)(yuan)則。根據這(zhe)一(yi)(yi)原(yuan)(yuan)則，對軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)建(jian)設(she)(she)(she)(she)使(shi)用(yong)(yong)的(de)(de)地(di)(di)(di)(di)表(biao)(biao)、地(di)(di)(di)(di)上(shang)(shang)或者(zhe)地(di)(di)(di)(di)下(xia)土地(di)(di)(di)(di)，以(yi)及結合(he)軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)設(she)(she)(she)(she)施(shi)一(yi)(yi)并開(kai)(kai)發的(de)(de)地(di)(di)(di)(di)表(biao)(biao)、地(di)(di)(di)(di)上(shang)(shang)或者(zhe) 地(di)(di)(di)(di)下(xia)空間的(de)(de)使(shi)用(yong)(yong)權(quan)、權(quan)屬(shu)登記(ji)等(deng)問題予以(yi)明確，進一(yi)(yi)步(bu)明確了對軌(gui)(gui)(gui)(gui)道(dao)交(jiao)通(tong)可持續發展所需要的(de)(de)土地(di)(di)(di)(di)保(bao)(bao)障措施(shi)。

　　《辦法》規定，因軌道交通建(jian)(jian)(jian)設(she)需(xu)要進(jin)(jin)(jin)入建(jian)(jian)(jian)筑物(wu)、構(gou)筑物(wu)或設(she)施(shi)(shi)(shi)內進(jin)(jin)(jin)行檢(jian)測(ce)(ce)和(he)(he)鑒定的(de)(de)，產(chan)權人或者使用人應當予以(yi)配合。在青島地(di)鐵的(de)(de)建(jian)(jian)(jian)設(she)過程(cheng)中，建(jian)(jian)(jian)設(she)單(dan)位(wei)始終 把安全(quan)生(sheng)產(chan)放(fang)在第一位(wei)，嚴(yan)格(ge)督(du)促施(shi)(shi)(shi)工(gong)單(dan)位(wei)采取有效(xiao)措(cuo)施(shi)(shi)(shi)，做到科學(xue)施(shi)(shi)(shi)工(gong)、文(wen)明施(shi)(shi)(shi)工(gong)、安全(quan)施(shi)(shi)(shi)工(gong)。在施(shi)(shi)(shi)工(gong)中，建(jian)(jian)(jian)設(she)單(dan)位(wei)會同(tong)(tong)監理單(dan)位(wei)進(jin)(jin)(jin)行全(quan)天候動態的(de)(de)施(shi)(shi)(shi)工(gong)隱(yin)患排(pai)查(cha) 和(he)(he)生(sheng)產(chan)安全(quan)檢(jian)查(cha)，對施(shi)(shi)(shi)工(gong)單(dan)位(wei)爆破用藥量、爆破振速以(yi)及噪聲、揚塵等諸多(duo)方面(mian)嚴(yan)格(ge)管控(kong)，切(qie)實保障施(shi)(shi)(shi)工(gong)安全(quan)，采取各(ge)種措(cuo)施(shi)(shi)(shi)減少施(shi)(shi)(shi)工(gong)對周(zhou)邊環境的(de)(de)影響；同(tong)(tong)時，地(di) 鐵建(jian)(jian)(jian)設(she)單(dan)位(wei)督(du)促施(shi)(shi)(shi)工(gong)單(dan)位(wei)必要時進(jin)(jin)(jin)入周(zhou)邊建(jian)(jian)(jian)筑物(wu)、構(gou)筑物(wu)或設(she)施(shi)(shi)(shi)內進(jin)(jin)(jin)行檢(jian)測(ce)(ce)和(he)(he)鑒定，力爭將可能造成居民住(zhu)宅(zhai)損害的(de)(de)因素降至最低。