郭锐,孙勇,樊杰.“十四五”时期中国城市群分类治理的政策[J].中国科学院院刊,2020,35(7):844-854.
“十四五”时期中国城市群分类治理的政策
Policies on Categorized Governance of China's Urban Agglomerations in 14th Five-Year Plan
“十四五”时期中国城市群分类治理的政策
Policies on Categorized Governance of China's Urban Agglomerations in 14th Five-Year Plan
作者
郭锐
中国科学院科技战略咨询研究院 北京 100190
GUO Rui
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
孙勇
中国科学院科技战略咨询研究院 北京 100190;中国科学院大学 公共政策与管理学院 北京 100049
SUN Yong
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China;School of Public Policy and Management, University of Chinese Academy of Sciences, Beijing 100049, China
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
FAN Jie
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China;Institute of Geographic Sciences and Natural Resources Research, Chinese Academy of Sciences, Beijing 100101, China
中国科学院科技战略咨询研究院 北京 100190
GUO Rui
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China
孙勇
中国科学院科技战略咨询研究院 北京 100190;中国科学院大学 公共政策与管理学院 北京 100049
SUN Yong
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China;School of Public Policy and Management, University of Chinese Academy of Sciences, Beijing 100049, China
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
FAN Jie
Institutes of Science and Development, Chinese Academy of Sciences, Beijing 100190, China;Institute of Geographic Sciences and Natural Resources Research, Chinese Academy of Sciences, Beijing 100101, China
中文关键词
城市群;分类政策;“十四五”规划;“一体化”发展;空间治理
英文关键词
urban agglomeration;categorized policy;14th Five-Year Plan;integrative development;spatial governance
中文摘要
从“十四五”时期到2035年基本实现现代化的发展阶段，城市群将依然是中国推动城镇化的主体形态。当前，中国城市群的发育已经呈现出多样化、所在区域的发展格局日益差异化、服务国土空间开发保护战略目标趋于多元化、现代治理方式要求精准化的态势，因此对城市群发展进行分类引导具有重要的科学意义。针对我国长期以来采取综合性政策对城市群进行分类指引存在的精准性不足、特色化难以凸显的问题，提出“十四五”时期以“四个专项+综合”的方式，即从规模等级、发展模式、空间组织、资源环境承载力4个方面，对城市群发展进行专项政策指引；同时，对一些普适性、战略性的政策提出综合政策指引，并建议未来将城市群作为中国国土空间规划体系当中的一个层级，每一个城市群都应该通过编制规划，以确定其自身的政策包。文章提出了基于全国国土空间开发保护战略格局、国家重大区域战略格局、城市群自身发展规律的3个维度，推进城市群一体化进程、助推城市群扩容提质、发挥城市群区域带动作用的3个着力点，以及“管管理者”“管资源环境”“管生产要素”“管营商和人居环境”的4个政策工具的政策分析框架，并对我国城市群进行了分类政策研究。从专项层面，围绕规模等级、发展模式、空间组织、资源环境承载力进行了城市群的类型划分和精准施策；从综合层面，提出了引导我国城市群高质量发展的主要类型和政策建议。
英文摘要
From the 14th Five-Year Plan to 2035, urban agglomerations will remain the main form of China's urbanization. At present, the development of China's urban agglomerations has been diversified, the development pattern of their regions is increasingly differentiated, the strategic objectives of serving the protection of land and space development are diversified, and modern governance methods require precision. Therefore, it is necessary to classify and guide the development of urban agglomerations. Aiming at the problems that the comprehensive policy to classify urban agglomerations in China are not accurate and characteristic enough, this study proposes the "four specials + comprehensive" policy. Special policy guidelines are provided for the development of urban agglomerations based on the feature of scale, development mode, space organization, and resource and environmental carrying capacity, and comprehensive policy guidelines are provided for general questions. It is recommended that future urban agglomerations be a hierarchy in China's national spatial planning system, and each urban agglomeration should formulate a plan to determine its own policy package. In this study, three dimensions are proposed based on the national spatial development and protection strategic pattern, the national major regional strategic pattern, and the development law of the urban agglomeration. Three key points are put forward to promote the integration process of urban agglomerations and the expansion and improvement of urban agglomerations, and give play to the regional driving force of urban agglomerations. The policy framework of the four policy tools of "managing managers", "managing resources and environment", "managing production factors", and "managing business and living environment" is also proposed. From the special level, the types of urban agglomerations and precise policies are organized based on the scale, development model, spatial organization, and resource and environmental carrying capacity. At the comprehensive level, the main types and policy recommendations are proposed to guide the high-quality development of urban agglomerations in China.
DOI10.16418/j.issn.1000-3045.20200408001
作者简介
郭锐 中国科学院科技战略咨询研究院助理研究员。主要从事国土空间规划与治理政策研究。先后承担和主要参与国家自然科学基金、第二次青藏高原综合科学考察研究任务、中国科学院战略性先导科技专项(A类)、国家高端智库等课题研究项目。发表学术论文10余篇,出版合著3部。
E-mail:guorui@casipm.ac.cn
GUO Rui Assistant Researcher of the Institutes of Science and Development,Chinese Academy of Sciences (CAS).He has been engaged in the research of spatial planning and governance policy.He has undertaken and participated in the research tasks of the National Natural Science Foundation of China,the Second Comprehensive Scientific Expedition to the Qinghai Tibet Plateau,the Strategy Priority Research Program of CAS (Category A),the National High-end Think Tank Research Project,etc.He has published more than 10 academic papers and 3 co-authored books.
E-mail:guorui@casipm.ac.cn
樊杰 中国科学院地理科学与资源研究所研究员,中国科学院科技战略咨询研究院副院长,中国科学院大学资源与环境学院教授。长期从事人文与经济地理学、区域可持续发展过程与格局、主体功能区划与空间治理体系等研究。中国城市规划学会副理事长,中国地理学会国土空间规划分会主任、《经济地理》主编。兼任全国"十四五"规划专家委员会委员,全国国土空间规划专家组成员,住房建设部人居环境专委会副主任委员,法国地理学会荣誉会士。承担第二次青藏高原综合科学考察研究任务、中国科学院战略性先导科技专项(A类)、国家自然科学基金重点项目等研究任务。发表学术论文近300篇,出版专著近30部。曾获中国科学院杰出科技成就奖。
E-mail:fanj@igsnrr.ac.cn
FAN Jie Doctor,Researcher at the Institute of Geographic Sciences and Natural Resources Research,Chinese Academy of Sciences (CAS),Deputy Director of Institutes of Science and Development,CAS,and Professor at College of Resources and Environment,University of Chinese Academy of Sciences.He has long been engaged in the research of humanity and economic geography,the process and pattern of regional sustainable development,the regionalization of main function and the spatial governance system.He is hosting or co-hosting a number of major research projects,e.g., "Function and System Optimization of Ecological Security Barrier" in the Second Comprehensive Scientific Expedition to the Qinghai Tibet Plateau, "Regional Green Development Plan" in the "PanThird-Pole Environmental Change and Green Silk Road" project of the Strategy Priority Research Program of CAS (Category A),and "Regional Function and Comprehensive Geographical Regionalization" of National Natural Science Foundation of China Key Program.He has published nearly 30 monographs and 300 papers in academic journals such as Earth Future,Chinese Science Bulletin and Acta Geographica Sinica.He was awarded the Outstanding Science and Technology Achievement Prize of CAS.He is serving as Vice Chairman of Urban Planning Society of China,Director of Territorial Space Planning Branch of the Geographical Society of China,Editor-in-Chief of Economic Geography,member of National 14th Five-Year Plan Expert Committee,member of the National Expert Group on Territorial Space Planning,Vice Chairman of the National Special Committee on Human Settlements Environment,and honorary member of the French Geographical Society.
E-mail:fanj@igsnrr.ac.cn
E-mail:guorui@casipm.ac.cn
GUO Rui Assistant Researcher of the Institutes of Science and Development,Chinese Academy of Sciences (CAS).He has been engaged in the research of spatial planning and governance policy.He has undertaken and participated in the research tasks of the National Natural Science Foundation of China,the Second Comprehensive Scientific Expedition to the Qinghai Tibet Plateau,the Strategy Priority Research Program of CAS (Category A),the National High-end Think Tank Research Project,etc.He has published more than 10 academic papers and 3 co-authored books.
E-mail:guorui@casipm.ac.cn
樊杰 中国科学院地理科学与资源研究所研究员,中国科学院科技战略咨询研究院副院长,中国科学院大学资源与环境学院教授。长期从事人文与经济地理学、区域可持续发展过程与格局、主体功能区划与空间治理体系等研究。中国城市规划学会副理事长,中国地理学会国土空间规划分会主任、《经济地理》主编。兼任全国"十四五"规划专家委员会委员,全国国土空间规划专家组成员,住房建设部人居环境专委会副主任委员,法国地理学会荣誉会士。承担第二次青藏高原综合科学考察研究任务、中国科学院战略性先导科技专项(A类)、国家自然科学基金重点项目等研究任务。发表学术论文近300篇,出版专著近30部。曾获中国科学院杰出科技成就奖。
E-mail:fanj@igsnrr.ac.cn
FAN Jie Doctor,Researcher at the Institute of Geographic Sciences and Natural Resources Research,Chinese Academy of Sciences (CAS),Deputy Director of Institutes of Science and Development,CAS,and Professor at College of Resources and Environment,University of Chinese Academy of Sciences.He has long been engaged in the research of humanity and economic geography,the process and pattern of regional sustainable development,the regionalization of main function and the spatial governance system.He is hosting or co-hosting a number of major research projects,e.g., "Function and System Optimization of Ecological Security Barrier" in the Second Comprehensive Scientific Expedition to the Qinghai Tibet Plateau, "Regional Green Development Plan" in the "PanThird-Pole Environmental Change and Green Silk Road" project of the Strategy Priority Research Program of CAS (Category A),and "Regional Function and Comprehensive Geographical Regionalization" of National Natural Science Foundation of China Key Program.He has published nearly 30 monographs and 300 papers in academic journals such as Earth Future,Chinese Science Bulletin and Acta Geographica Sinica.He was awarded the Outstanding Science and Technology Achievement Prize of CAS.He is serving as Vice Chairman of Urban Planning Society of China,Director of Territorial Space Planning Branch of the Geographical Society of China,Editor-in-Chief of Economic Geography,member of National 14th Five-Year Plan Expert Committee,member of the National Expert Group on Territorial Space Planning,Vice Chairman of the National Special Committee on Human Settlements Environment,and honorary member of the French Geographical Society.
E-mail:fanj@igsnrr.ac.cn
