It refers to determining a specific area as a specific area according to the carrying capacity of resources and environment, existing development density and development potential of different areas.
The spatial unit of the main function positioning type. The division of main functional areas should mainly consider the natural ecological conditions and the carrying capacity of water and soil resources.
Strength, location characteristics, environmental capacity, existing development density, economic structure characteristics, population concentration, and participation in international division of labor.
And other factors.
First, the significance of the preparation of the national main functional area planning
The purpose of compiling the national main functional area plan is to plan the future population distribution, economic layout, land use and urbanization pattern according to the carrying capacity of resources and environment, existing development density and development potential in different regions, divide the national land space into four categories: optimized development, key development, restricted development and prohibited development, determine the main functional orientation, clarify the development direction, control the development intensity, standardize the development order, improve the development policy, and gradually form a spatial development pattern in which population, economy, resources and environment are coordinated.
Formulating the national main functional area planning and promoting the formation of main functional areas is an important measure to fully implement Scientific Outlook on Development and build a harmonious socialist society, which is conducive to adhering to people-oriented, narrowing the gap in regional public services and promoting regional coordinated development; It is conducive to guiding the economic layout and population distribution to adapt to the carrying capacity of resources and environment, and promoting the spatial balance of population, economy, resources and environment; It is beneficial to reverse the deterioration trend of ecological environment from the source, adapt to and slow down climate change, and realize resource conservation and environmental protection; It is conducive to breaking administrative divisions, formulating and implementing targeted policies, measures and performance evaluation systems, and strengthening and improving regional regulation.
The planning of national main functional areas is strategic, basic and binding, and it is the basic basis for the spatial development and layout of national economic and social development planning, population planning, regional planning, urban planning, land use planning, environmental protection planning, ecological construction planning, comprehensive river basin planning, comprehensive water resources planning, marine functional zoning, sea area utilization planning, grain production planning, transportation planning, disaster prevention and mitigation planning, etc. At the same time, the preparation of the national main functional area planning should be supported by the above-mentioned planning and other related planning, and make a good connection between policies, regulations and implementation management.
Two, the guiding ideology and principles of the preparation of the national main functional area planning
(1) guiding ideology. Guided by Deng Xiaoping Theory and Theory of Three Represents, we will fully implement Scientific Outlook on Development's strategic thought on building a harmonious socialist society, plan the basic pattern of population and economy in the future in a forward-looking and overall way on the basis of adhering to the overall strategy of regional development, and guide the formation of a regional coordinated development pattern with clear orientation of main functions, coordination of population, economy, resources and environment, and narrowing the gap between public services and people's living standards.
(2) Main principles. Adhere to the people-oriented principle, guide the rational and balanced distribution of population and economy within the national territory, and gradually realize equal public services for people in different regions and urban and rural areas; Adhere to intensive development, guide the relatively concentrated development of industries and population, form an urbanization pattern with urban agglomerations as the main form and other towns dotted around, improve the utilization efficiency of resources such as land, water and climate, and enhance the ability of sustainable development; Adhere to respect for nature, development must be based on the protection of natural ecology, development must be based on environmental capacity, ensure ecological security, continuously improve environmental quality, and achieve harmony between man and nature; Adhere to the overall planning of urban and rural areas, prevent excessive erosion of rural areas by urbanized areas, and provide necessary space for rural population to enter cities; Adhere to the overall planning of land and sea, strengthen marine awareness, fully consider the carrying capacity of marine resources and environment, and make overall plans for land development and marine development.
According to the above guiding ideology and principles, several relations should be handled well in the planning of national main functional areas.
First, handle the relationship between development and development. Development is the last word, and development must be based on science, rationality, order and moderation. China is in the stage of accelerating industrialization and urbanization. The purpose of compiling and implementing the national main functional area plan is to clearly optimize and focus on development areas, delimit restricted and prohibited development areas and achieve sound and rapid development in the process of large-scale development according to the carrying capacity of resources and environment.
The second is to handle the relationship between the government and the market. The national main functional area planning is the government's strategic design and overall layout for the development of land space, which embodies the country's strategic intention. The government should rationally allocate public resources according to the orientation of the main functional areas, at the same time, give full play to the basic role of the market in allocating resources, improve laws, regulations and regional policies, and comprehensively use various means to guide the behavior of market participants to conform to the orientation of the main functional areas.
The third is to handle the relationship between the local and the global. Promoting the formation of the main functional area is based on the overall interests, seeking the maximization of the overall interests and long-term interests of the country and the people, and it is necessary to obey the overall situation and give consideration to the overall situation.
The fourth is to handle the relationship between the main function and other functions. The main function area should highlight the main function and leading role, while not excluding other auxiliary or affiliated functions. The main function of optimized development and key development areas is to gather economy and population, but there should also be ecological areas, agricultural areas, tourism and leisure areas. The main function of the restricted development zone is to protect the ecological environment, but it can also develop characteristic industries and moderately develop mineral resources within the tolerable range of ecology, resources and environment.
The fifth is to handle the relationship between administrative areas and main functional areas. The planning of main functional areas needs to break the boundaries of administrative regions and change the method of formulating regional policies and performance evaluation completely according to administrative regions. At the same time, the implementation of the main functional area planning also needs to rely on a certain level of administrative areas.
The sixth is to deal with the relationship between the main functional areas. All kinds of main functional areas should work together and promote each other. To optimize the development areas, it is necessary to transfer industries to key development areas and reduce the pressure of large-scale cross-regional flow of population and resources and ecological environment; Key development areas should promote the development of industrial clusters and enhance their ability to undertake restricted development and prohibit the development of regional overloaded population; Areas where development is restricted or prohibited should improve the carrying capacity of the ecological environment through ecological construction and environmental protection, and gradually become national or regional ecological barriers and natural and cultural protection areas.
Seventh, handle the relationship between maintaining stability and dynamic adjustment. Once the main functional area is determined, it cannot be changed at will. Protect prohibited development areas in strict accordance with the law; Restricted development areas should adhere to the priority of protection and gradually expand the scope; According to the changes of economic and social development and the carrying capacity of resources and environment, the key development areas can be adjusted to optimized development areas. (Source: General Office of the State Council)
Three, the main task of the preparation of the national main functional area planning
The national main functional area planning consists of national main functional area planning and provincial main functional area planning, which are compiled at national and provincial levels. The national main functional area planning is compiled by the national main functional area planning leading group (hereinafter referred to as the leading group) in conjunction with the people's governments of various provinces (autonomous regions and municipalities), and the planning period is until 2020, and it will be adjusted by rolling through mid-term evaluation; The planning of main functional areas at the provincial level shall be organized by the people's governments of provinces (autonomous regions and municipalities), and organized by the people's governments at the city and county levels, and the planning period shall be 2020. The main task of compiling the national main functional area plan is to determine the number, location and scope of various main functional areas at all levels on the basis of analyzing and evaluating the national space, and to clarify the positioning, development direction, control principles and regional policies of different main functional areas.
(1) analysis and evaluation.
To draw up the national main functional area plan, we must first make an objective analysis and evaluation of the national land space. Scientifically determine the index system, and use spatial analysis techniques and means such as remote sensing and geographic information to comprehensively analyze and evaluate all national or local land spaces as the basic basis for determining the main functional areas. The analysis and evaluation adopts the national unified index system, and considers the following factors as a whole:
The first is the carrying capacity of resources and environment. That is, under the premise of not damaging the natural ecological environment and maintaining a good ecosystem, the economic scale and population scale that can be carried by the resource endowment and environmental capacity of a specific region. It mainly includes: the richness of water, land and other resources, the environmental capacity of water and atmosphere, the ecological sensitivity of soil erosion and desertification, the ecological importance of biodiversity and water conservation, and the frequent occurrence of natural disasters such as geology, earthquake, climate and storm surge.
The second is the existing development density. Mainly refers to the degree of industrialization and urbanization in a specific region, including the intensity of land resources and water resources development.
The third is the development potential. That is, based on a certain carrying capacity of resources and environment, the potential development capacity of a specific region includes the foundation of economic and social development, the level of science and technology education, geographical conditions, historical nationalities, national and regional strategic positioning, etc.
(2) Determine the main functional areas.
On the basis of analysis and evaluation, according to the spatial demand forecast of population residence, transportation and industrial development and the analysis of future land spatial change trend, the number, location and scope of various main functional areas are determined in the national and provincial main functional areas planning.
After the number, location and scope of the main functional areas are determined, the positioning, development direction, development sequence and control principles of each main functional area should be defined according to the carrying capacity of resources and environment, existing development density and development potential of each main functional area.
The four main functional areas at the national level do not cover the whole territory. In principle, the optimized development, key development and restricted development areas are based on county-level administrative areas, and the prohibited development areas are determined according to the legal scope or natural boundaries; According to the overall strategy of regional development and the overall requirements of promoting the formation of main functional areas, the guiding principles, main objectives and development strategies of promoting the formation of main functional areas should be clearly defined, and the main principles of provincial main functional areas and the main responsibilities of city and county administrative regions in promoting the formation of main functional areas should be clearly determined.
According to the national main functional area planning, provincial main functional areas should be defined as the same type areas at the national level to ensure the consistency of quantity, location and scope. For the national space outside the national main functional area in the administrative region, the provincial main functional area should be determined according to the principles determined by the state and the actual situation in the region. In principle, the county-level administrative region is the basic unit; In principle, areas dominated by agriculture should be defined as restricted development areas; Areas located at the boundary of provincial administrative regions with strong homogeneity should be identified as the main functional areas of the same type; The main land functional areas and marine functional areas of coastal provinces should be connected with each other, and the main functional orientation should be coordinated with each other; Distinguish the short-term, medium-term and long-term development sequence of key development areas; Areas rich in mineral resources but weak in ecological environment carrying capacity can moderately develop mineral resources, but in principle they should be defined as restricted development zones; All kinds of provincial nature and cultural reserves established according to law shall be determined as prohibited development areas.
(3) Improve regional policies.
The key to implementing the national main functional area planning and realizing the orientation of main functional areas is to adjust and improve relevant policies, mainly including:
1. Fiscal policy. In order to achieve the equalization of basic public services, we will improve the central and provincial financial transfer payment systems, and focus on increasing financial transfer payments for public services and ecological environment compensation in areas where development is restricted and prohibited.
2. Investment policy. Gradually implement the investment policy of combining the main functional areas with the fields. Government investment will focus on supporting the construction of public service facilities, ecological construction and environmental protection in areas where development is restricted or prohibited, and supporting infrastructure construction in key development areas.
3. Industrial policy. In accordance with the requirements of promoting the formation of main functional areas, study and put forward industrial guidance catalogues and measures for different main functional areas, guide and optimize the development areas, enhance the ability of independent innovation, and enhance the level and competitiveness of industrial structure; Guide key development areas to strengthen the construction of industrial supporting capacity and enhance the ability to absorb industrial transfer and independent innovation; Guide and restrict the development of industries with regional characteristics, and limit industrial expansion that does not meet the main functional orientation.
4. Land policy. According to the relevant requirements of the main functional areas and the overall land use planning, the differentiated land use policy will be implemented to ensure that the quantity and quality of 65.438+0.8 billion mu of cultivated land will not decline. Strictly control the increment of construction land in optimized development areas, appropriately expand the supply of construction land in key development areas, strictly control the land in restricted development areas and prohibited development areas, and strictly prohibit the change of ecological land use.
5. Population management policy. Adjust and control the total population according to the main function orientation, guide the orderly flow of population, and gradually form a mechanism in which production factors such as population and capital flow in the same direction. Encourage the optimization of development zones and key development zones to attract migrants to settle down; Guide the gradual, voluntary, smooth and orderly transfer of population in areas where development is restricted or prohibited, and ease the tension between man and nature.
6. Environmental protection policy. According to the environmental carrying capacity of different main functional areas, the environmental protection policy of classified management is put forward. Optimize the development zone, implement stricter pollutant discharge and environmental protection standards, and greatly reduce pollution discharge; Key development areas should maintain environmental carrying capacity and increase production and reduce pollution; Restricted development areas should give priority to protection to ensure the restoration and protection of ecological functions; Strictly protect areas prohibited from development according to law.
7. Performance evaluation and performance appraisal. According to the different positioning of the main functional areas, different performance evaluation indicators and methods are implemented. To optimize the development zone, we should strengthen the evaluation of economic structure, resource consumption and independent innovation, and weaken the evaluation of economic growth; Key development areas should comprehensively evaluate economic growth, quality and efficiency, industrialization and urbanization level and independent innovation in related fields; Restricted development areas should attach importance to ecological construction and environmental protection evaluation, and weaken the evaluation of economic growth, industrialization and urbanization; The prohibited development areas mainly evaluate ecological construction and environmental protection. (Source: General Office of the State Council)
Four, the preparation of the national main functional area planning requirements
(a) to ensure the progress of work. The first draft of the national main functional area planning was formed in September 2007, and the opinions of various regions, departments and all walks of life were widely solicited through various forms. After being evaluated and improved by the 11th Five-Year Plan Expert Committee, it was submitted to the State Council for deliberation in June+February, 5438. In 2007, the provincial main functional areas will carry out basic research in an all-round way and carry out national space special research and comprehensive evaluation; In June 2008, the first draft of the plan was formed and reported to the office of the leading group, which was connected with the national main functional area planning and the main functional area planning of neighboring provinces (autonomous regions and municipalities); In September 2008, the plan was revised according to the convergence opinions and reported to the convergence leading group office again; In June, 2008 165438+ 10, a draft plan was formed according to the convergence opinions, and submitted to the provincial (autonomous region, city) people's government for deliberation together with the expert argumentation report.
(2) Strengthen organizational leadership. Compiling the national main functional area planning is a pioneering work, involving a wide range, great difficulty and heavy task. All regions and departments should proceed from the overall situation, unify their thinking, attach great importance to it, strengthen leadership, implement their responsibilities, and fully support the planning work. The leading group shall, in accordance with the responsibilities entrusted by the State Council, actively guide and coordinate the solution of major problems in planning. The people's governments of all provinces (autonomous regions and municipalities) should pay close attention to the establishment of a leading group for the planning of major functional areas in the region and do a good job in organizing and coordinating the planning.
(3) Improve working methods. It is necessary to widely mobilize multidisciplinary forces, fully draw lessons from foreign advanced experience, continuously deepen the research on the theory and technical route of the main functional areas, scientifically determine the index system and evaluation methods, and refine and improve the regional policies for classified management. We should adhere to the principles of government organization, expert leadership, departmental cooperation, public participation and scientific decision-making, and arrange the planning work scientifically and systematically. The people's governments of all provinces (autonomous regions and municipalities) shall set up planning expert advisory committees to undertake planning consultation, demonstration and evaluation. It is necessary to adopt various forms and channels to expand public participation and enhance the openness and transparency of planning.
(four) the implementation of personnel and financial security. It is necessary to select key personnel with good knowledge structure and strong business ability, form an effective planning team, strengthen training, improve the quality and level of planners, and provide talent guarantee for planning. The people's governments of all provinces (autonomous regions and municipalities) should arrange the necessary planning funds and incorporate them into the fiscal budget at the corresponding level to provide financial guarantee for planning.