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    面向世界科技前沿,面向国家重大需求,面向国民经济主战场,率先实现科学技术跨越发展,率先建成国家创新人才高地,率先建成国家高水平科技智库,率先建设国际一流科研机构。

    ——中国科学院办院方针

    首页 > 访谈·视点

    樊杰:以主体功能区战略打造高品质国土空间

    2019-09-23 中国科学报
    【字体:

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      在日前召开的中央财经委员会第五次会议上,习近平总书记强调,落实主体功能区战略,完善空间治理,形成优势互补、高质量发展的区域经济布局。

      主体功能区是我国工业文明时期探索的一条符合生态文明要求的空间治理之路,是基于深入的理论创新、系统的科学研究、充分理解和适应中国国情的一种空间治理方式。

      首先,主体功能区战略是经得起历史检验的,其中的生态产品、资源环境承载力等理念完全符合生态文明要求,给每个县区确定的主体功能定位符合中国特殊的管理体制特点,“一带一路”愿景和新型城市化战略也同样证明主体功能区是科学合理的战略。

      其次,主体功能区是健全空间治理体系的抓手,从领导干部政绩考核、环境容量总量管控、承载力监测预警机制到建立国土空间开发?;ぶ贫?,主体功能区都成为基本遵循。此外,在京津冀协同发展、长三角一体化、粤港澳大湾区等重大区域战略和规划中,主体功能区依然扮演着基础性制度的角色。

      落实主体功能区战略,一方面是解决好如何精准落地的问题,这就需要通过健全空间规划体系把主体功能定位传导到基层;另一方面是如何建立配套的政策体系问题,扭转当前只有生态功能区具有较高含金量的补贴扶持类政策、缺乏对城市化区域激励性政策的缺陷,通过财政转移支付、生态产品交易等政策,解决不同功能区域基本公共服务水平均等化问题。要从“战略”高度和“基础性”制度两个维度理解主体功能区,把主体功能区作为发展规划和空间规划的“旋转门”,实现经济社会生态效益相统一、人口经济资源环境相均衡,把美丽家园的空间载体?;ず?、建设好。

      主体功能区把全国划分为城市空间、生态安全空间、粮食主产区和遗产?;さ氐?类空间。其中,城市空间被定义为承载大规模人口和现代产业经济集聚的主要空间形式,在具体表达上就是中心城市和城市群区域,基于城市空间分布形成的我国城镇化战略格局,是过去10年和未来30年我国城市化空间布局的基本遵循。

      加速城镇化,是人口从不适宜集聚的区域疏解、流入宜居宜业城市空间的必然过程,是现代化的必由之路。采取中心城市和城市群地区作为承载发展要素的主要形式,符合我国资源环境承载能力空间分布高度不均衡和我国人口经济分布的特点,符合全球竞争背景下成为优质发展要素流空间的“源”和“汇”的规模经济要求,也符合按照主体功能区引导人口经济与资源环境均衡配置的规律。

      未来,我国沿海地区的京津冀、长三角和粤港澳大都市连绵区(或称城市区域),将成为全国乃至全球优质发展要素的主要空间载体,东北、华中、西北、西南和部分省区的人口经济将进一步向区域内城市群和都市圈流动,而各省区的都市圈和省域中心城市将成为省区内生产要素的集聚地。中心城市、都市圈、城市群和大都市连绵区(城市区域),将集聚全国2/3以上的城市化人口,成为我国全面实现现代化的发力点和引擎。

      主体功能区是国土空间开发?;び猛竟苤频目蒲Х桨?。主体功能区划是建立在自然承载力、地域功能适宜性和发展要素空间配置规律基础上,建设美丽中国的一张蓝图。城市空间人口经济高效集聚宜居,生态安全空间自然健康秀美,粮食主产地因地制宜稳产高产、优势互补、功能协调。通过国土空间规划对主体功能定位进行精准落地,应当成为实施现代化空间治理、实现高质量区域经济布局的行动依据。

      当前,我国空间治理体系尚未健全,在治理能力和治理体系现代化进程中相对滞后。完善空间治理体系,一是要坚定不移地走空间治理法制化道路,国土是遍在的、最大的公共资源,法律是规范政府、企业和个人进行区域经济布局最有力的准绳。二是要提升空间治理的科学化水平,区域经济布局对象、途径、效果非常复杂,是个开放变化着的巨系统,必须依据系统解决问题的科学方案。为此,要加强理论创新、补空白,要建立人才体系、补短板,要优化数据采集与应用机制、打基础。三是各级政府要成为学习型的机构,领导干部要成为学习型的管理者,了解中国基本地理国情,掌握区域经济布局的基本原理,增强依法依规执政行政的自觉性。四是逐步开门编制空间规划、制定区域经济布局政策、实施监督评估,通过公开透明的民主化同依法依规执政行政的互动,为优化区域发展格局和建设美丽中国加油助力。

      面向“十四五”,经济实现现代化需要科技创新、文化创新、体制创新,需要更高的知识水平、智慧化基础设施配套水平和对外开放程度;区域发展格局优化要处理好国内与国外、政府与市场、中央与地方等一系列重大关系。抓住机遇,迎接挑战,在深刻变化中奋力实现经济布局和区域发展的新涅槃。

     ?。ㄗ髡呦抵泄蒲г嚎萍颊铰宰裳芯吭焊痹撼?、地理科学与资源研究所研究员)

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