| 摘要: |
| 主体功能区是实施我国国土空间开
发保护制度的重要政策工具。本文运用国土
空间的“区域”和“要素”特征认知，对我国
主体功能区的理念认知和规划实践发展进
行梳理，认为主体功能区无论是思想理念、
划分对象还是实施手段都紧密围绕“区域”
型国土空间的定位来展开。以“区域—要素”
统筹视角进一步分析，发现规划实施过程存
在“区域—区域”衔接不足、“区域—要素”
传导不畅等问题。未来其制度的完善重点应
从纳入国土空间规划体系、优化现有区划、
加强绩效考核等方面展开。 |
| 关键词: 主体功能区 国土空间规划 “区域—要素”统筹 |
| DOI：10.13791/j.cnki.hsfwest.20200101 |
| 分类号: |
| 基金项目:研究阐释党的十九大精神国家社科基金专项课题（18VSJ041） |
|
| Understanding the Major Function Zoning: An Analysis Based on Regional and Elemental Perspectives |
|
YANG Ling,LIN Jian,LI Dong
|
| Abstract: |
| Since the reform and opening up, China’s economic development has made remarkable
achievements. However, the spatial problems have become increasingly prominent, such as the
destruction of resources and environment, the disorder of spatial development, and the imbalance
of regional development. In order to promote the coordination of urbanization development and
environment protection and balanced development of regions, the idea of major function zone
was established. The major function zone is an important policy tool of the system implement for
developing and protecting territorial space. How to understand the major function zone and planning?
It has become an important issue that cannot be bypassed in the construction of the territorial spatial
planning system in the new era. This paper starts with the cognition of territorial space, discusses
the connotation and existing problems of the major function zone. On these grounds, the article puts
forward relevant suggestions for the future optimization of the major function zone.
Based on the “region” and “element” characteristics of territorial space, this paper reviews the
cognition and planning practice of major function zone. The major function zone is closely centered
on the feature of the regional territorial space. 1) The ideology of the major function zone comes
from the idea that “region” has dominant territorial function. In view of the macro characteristic
and functional diversity of the regional territorial space, the division principle of major function
zone is comprehensive. It highlights the major functions of the region and has auxiliary functions.
2) The major function zone takes “regional” territorial space as the division object. The optimized,
prioritized and restricted zones basically adopt county-level administrative units as basic units to
interface with the governmental responsibilities. And the prohibited zones are some special regional
territorial space on a macro scale. 3) The implementation measures of major function zone planning
are policy management tools targeted at “region”. Focusing on comprehensive management, the
major function zone planning puts forward diversified supporting policies, and clarifies the key
points of performance evaluation for different major function zones.
From the perspective of “region-element” coordination, some problems are found in the planning
implementation process. 1) In the transmission of “region-region”, there is a deviation between the
two-level planning schemes. In the game between central and local governments, local governments
hope to bring more administrative regions into prioritized zones, in order to obtain more development
opportunities. In addition, the provincial planning may have incomplete understanding of indicators
and policy connotations, which will lead to an inadequate implementation of superior planning. 2)
In the transmission of “region-element”, a use-oriented regulation system has not yet been formed. Most of the indicators in the major function zone planning come from other planning that have been approved and promulgated. The supporting policies
for regional territorial space are closely linked to the development planning rather than using control of elemental territorial space. 3) In the coordination
of “region-element”, organic synergy with other spatial planning has not been achieved. In terms of content, the major function zone planning refers more
to other existing spatial planning. In terms of implementation, the major function zone planning does not leave corresponding interfaces to other spatial
planning. In terms of authority, the major function zone planning has not obtained corresponding legal basis and lacks mandatory binding force.
Facing the requirements of the ecological civilization construction and the national space governance in the new era, this article points out that from
the perspective of “region-element” coordination, it is necessary to further improve the major function zone system from the following three aspects.
1) Effectively incorporating into the territorial space planning system. This paper believes that the government should adhere to the legalization of
space governance and strengthen the position of the major function zone strategy. Combine major function zone with the index decomposition, spatial
regulation and other control measures apply to elemental territorial space. 2) Optimizing the existing major function zoning. In terms of function
adjustment, the positioning and development direction of provincial major function zoning should be consistent with national planning. In addition, the
proportion of each major function zone should be strictly controlled. When optimizing the major functional zones of coastal counties, the planning should
take spatial protection and sea area development into account, with the principle of land-sea coordination. 3) Implementing the performance evaluation
mechanism. On the one hand, it is necessary to strengthen the connection with other types of assessments. The government should appropriately adjust
the existing assessment and evaluation indicators according to the major functions. On the other hand, the application of the assessment results should be
strengthened. It brings the construction of the major functional zones into the comprehensive performance evaluation. |
| Key words: Major Major Function Zone Territorial Spatial Planning Region-Element Coordination |
