盛科荣,樊杰.主体功能区作为国土开发的基础制度作用[J].中国科学院院刊,2016,31(1):44-50.

主体功能区作为国土开发的基础制度作用

Fundamental Institution Function of Major Function Oriented Zoning for China's Land Development and Protection

盛科荣
中国科学院地理科学与资源研究所 北京 100101;山东理工大学商学院 淄博 255012
Sheng Kerong
Institute of Geographic Sciences and Resources Research, Chinese Academy of Sciences, Beijing 100101, China;School of Business, Shandong University of Technology, Zibo 255012, China
樊杰
中国科学院地理科学与资源研究所 北京 100101,fanj@igsnrr.ac.cn
Fan Jie
Institute of Geographic Sciences and Resources Research, Chinese Academy of Sciences, Beijing 100101, China

         主体功能区;基础制度;空间规划;政府治理

        Major Function-Oriented Zone(MFOZ);fundamental institution function;spatial planning;governance system

        十八届五中全会将主体功能区建设提高到作为我国国土空间开发保护基础制度的战略地位。在回顾主体功能区规划的时代背景、介绍规划方案基本概念和主要内容的基础上,文章勾勒出主体功能区作为国土空间开发保护基础制度的解析框架,分析了主体功能区对于优化国土开发保护战略格局、完善区域政策和地方政府治理体系、整合各类空间规划的作用机理,最后从完善政府职责体系、推进空间规划立法、修订空间规划体系和加强科技基础支撑 四个方面提出落实主体功能区规划基础制度作用的建议。

        In the 21st century, the current problem of unbalanced regional development in China has made the objective demand for territorial spatial planning unprecedentedly prominent. This formed the background against which the Major Function-Oriented Zone Planning(MFOZ Planning)was introduced. MFOZ Planning is an important attempt in China's spatial planning since the beginning of the new century. In the Proposal on the Formulation of the 13th Five-Year Plan for national economy and social development, MFOZ is raised to a higher level position of fundamental institution function in China's land development and protection system. The paper outlines an analytical framework based on the draft of China's MFOZ scheme, which is used to examine the fundamental institution function of MFOZ for land development and protection. The core content of MFOZ is that it gives a clear spatial pattern of territorial function and defines the orientation of the development of each region by establishing “three strategic spatial patterns” and “four types of functional zones”, thus becoming the overall scheme of China's land development and protection. “Three strategic spatial patterns” include the formation of “two vertical and three horizontal” urbanization pattern, to promote the effective agglomeration of population and industry, and leads China's modernization process; the formation of “seven regions and twenty-three belts” of agriculture development, to guarantee the supply of agriculture products; the formation of “two shelters and three belts” of ecological security pattern, to improve ecological safety. “Four types of functional zones” refer to the developmentoptimized zone which is area significant for improving the national competitiveness, the development-prioritized zone which is area significant for supporting sustained regional economic growth, the development-restricted zone which is area significant for safeguarding ecological security and food security, and the development-prohibited zone which is area significant for preserving natural and cultural resources. MFOZ and the overall pattern of land development and protection put forwards new requirements for regional governance system, and point out new directions for regional policy and spatial planning aimed at the coordinated development of resource environment and socioeconomic system. Policy system should be adjusted according to the main function designated by MFOZ, to reflect the comprehensive benefits of socioeconomic system and natural ecosystem and the differences of regional development modes, thus ensuring that different type of regions can consciously select development mode in accord with their function orientation. The spatial planning system should also be improved using MFOZ Planning as the basis, so that the land use planning, urban planning, regional planning, and other spatial planning could be interconnected with each other and consistent with MFOZ Planning. Finally, the paper discusses the implementation, development, and improvement of the strategy of MFOZ Planning from four aspects, i.e., responsibility system, spatial planning system, spatial planning legislation, and scientific support system. The MFOZ Planning involves central and local governments at different levels and different government departments as well, so to define the responsibilities of different governments and departments is the basic guarantee for the implementation of planning. Existing regional planning schemes should be revised and adjusted step by step, and regional scope, functional orientation, development focus, and regulation principles should be gradually coordinated with the MFOZ Planning. The fundamental function of MFOZ Planning should be ensured by legislation, the prerequisites such as financial transfer payment, and cross boundary collaborative governance should also be set down in legal form to establish the long-term mechanism. Accurate, comprehensive data networks which will make our understanding and judgment on territorial space more precise should be established, and nation-wide monitoring networks which can make comprehensive evaluation of the effects of planning should also be formed.