我国国土空间开发保护格局优化配置理论创新与“十三五”规划的应对策略

Theoretical Innovation in Optimization of Protection and Development of China's Territorial Space and Coping Strategy of 13th Five-Year Plan

        樊杰(中国科学院科技战略咨询研究院 北京 100190;
中国科学院地理科学与资源研究所 北京 100101;
中国科学院区域可持续发展分析与模拟重点实验室 北京 100101)

         国土空间;空间管制;区域治理;区域发展;“十三五”规划

        territorial space;spatial regulation;regional governance;regional development;13th Five-Year Plan

        我国空间管制和区域治理存在的核心问题是:长远和顶层的战略缺失或近期出现战略碎片化迹象,规划和政策因忽略区域差别化而针对性差,配套体系不完整,约束性手段欠缺等。针对这些问题,亟需在国土空间优化配置理论、区域协调发展理论、城市化和城乡发展一体化理论等方面实现创新。结合我国“十三五”规划在该领域面临的重大问题,文章以“创新、协调、绿色、开放、共享”的发展理念为主线,以国土空间开发保护战略格局、东西双向开放战略对我国区域发展格局的影响、主体功能区和资源环境承载能力、精准扶贫和差异化的城镇化模式,以及党的十八届五中全会公告引起社会普遍关注的二胎政策的区域响应等为主要内容,重点讨论了未来空间管制和区域治理的理论创新的关键命题,包括深入研究影响国土空间格局变化和区域发展的新因素和新机制,修订和完善国土开发保护的空间结构组织原理,建构区域差异化发展模式和区域政策体系,揭示促进不同类型区域之间利益均衡的调控机理。文章还尝试运用新理念和新思路,针对“十三五”规划应对策略提出了新建议,以期为“十三五”规划在城镇化与区域发展领域的研制工作提供参考。

        The development of China's spatial regulation and regional governance can be divided into two stages. The first stage was from 1949, the new China was founded, to 2000, with a time span of more than 50 years. In this stage, the problem of spatial distribution and regional development has not been concerned by the government. Due to the lack of territorial development and protection strategy, space planning and regional policies, the land use was disordered, the regional development was imbalanced, and the urbanization and industrialization were blinded. The second stage was after 2000, the spatial development and protection pattern, regional coordinating and sustainable development, were more and more concerned by the highest decision-making. But this time, the key problem of China's spatial regulation and regional governance were: deficiency of long-term and top-level strategy and fragmentation of short-term strategy, poor pertinence of plan and policy caused by neglect of regional differentiation, imperfection of supporting system, and lack of constraint means. As a result, the quality and efficiency of land use and regional development was still low, and the goal of reasonable spatial organization can not be achieved. China is in the process of transformation, and has its own characteristics in the domestic and international environment, dynamic conditions of development, constraints factors and the development goals system. The existing theory and the development experience of the developed countries are not enough to guide the construction of socialism with Chinese characteristics. These problems need to be solved by theoretical innovation on optimization of territorial space, regional coordinated development, urbanization and urban-rural development integration. The Five-year plan for national economic and social development is the highest planning in China, and developed in each five years. Combined with major problems facing China's 13th Five-Year Plan, from 2016 to 2020, in this field, this paper takes“innovation, coordination, green, open and sharing”development concept as the mainline, and mainly focuses on issues including protection and development of territorial strategy, effects of east-west bidirectional opening-up on China's regional development pattern, Major Function Oriented Zoning(MFOZ) and resources and environment carrying capacity, accurate poverty alleviation and differentiation model, and regional response to well-known two-child policy proposed by the party's eighteen plenary session Bulletin. With future spatial regulation and regional governance as main topics, this paper further investigates several propositions including studying new factors and mechanisms of territorial space changing and regional development, revising organization principle of the spatial structure of protection and development of territorial space, constructing development model and regional policy system based on regional differentiation, revealing regulation mechanism of the interest balance between different types of regions. Furthermore, the paper advances that the 13th Five-Year Plan should be more strategic, and should pay more attention to the issues with long time sequence, wide spatial scale, and strong ability to coordinate different departments and fields, such as development and protection; should be more constraining, because necessary top-down regulation is crucial for orderly, sustainable, and efficient development in the transition process; should be more pertinent, in the formulation process of major planning and policy, different modes, ways and measures should be fully studied in order to satisfy the development needs of different regions; should be more systemic, and should analyze problems from multiple perspectives and make systemic design, which is the key to ensure scientific decision-making and planning in the process of promoting the level of governance capacity modernization and improving the system of regional governance in 13th Five-Year Plan. With new ideas and concepts, this paper also proposes suggestions on coping strategy of 13th Five-Year Plan, providing reference for relative works on urbanization and regional development of 13th Five-Year Plan.