县域主体功能区治理方案设计与监管体系

如何在县域层面深化主体功能区治理理念与方法应用,切实提升国土空间治理效果是新时代中国自然资源管理亟需破解的现实问题。主体功能区在国土空间管制中发挥宏观整体性的基础约束作用,重点关注开发密度高、资源环境承载力弱以及关系国家粮食生态安全的空间范围。县域主体功能区划分应遵循供需双侧导向的适宜性判别思路,兼顾空间边界模糊与监管责权交叉,融合技术判别与主体协商,尽可能落实到镇、村庄行政边界之上。对连云港市赣榆区的应用研究表明：以镇行政边界作为空间边界限阈,该区可以划分出转型发展区、提质发展区、重点建设区、重点培育区、一般农业生产区、果林产业园建设区和禁止开发区等主体功能区。县域主体功能区划定及实施过程应充分考虑县级空间事权关系,构建以省级—县级政府为主体、全社会共同参与的治理与监管体系,从土地市场、政策调控和社会监督三方面形成管控决策协调互动的政策机制。

The schematic design and supervision system of the county main functional areas governance

How to widen the application of the principle and method of main functional areas governance and effectively improve the effect of territory space governance at the county level is a realistic issue in China's natural resources management in the new era. Main functional areas play a fundamental role in territorial space control, focusing on the spatial scope related to high development density, low resource and environment bearing capacity, and issues concerning national food and ecological security. The county main functional divisions should follow the idea of suitability discrimination of supply and demand orientation, take into account the ambiguity of spatial boundary and the overlapping of supervision responsibilities and powers, and integrate the technology discrimination with the main body consultation, so as to be implemented on the administrative boundary of town and village as far as possible. The application study on Ganyu county in Lianyungang city shows that the administrative boundary of the town can be used as the spatial boundary threshold to divide the main functional areas such as transition development areas, upgrading development areas, key development areas, key cultivation areas, general agricultural production areas, fruit industrial park construction area, and forbidden development areas. The delineation and implementation of county main functional areas should take into full consideration the relationship between spatial affairs and powers at the county level, and build a governance and supervision system with provincial-level and county-level governments as the main body and the participation of the whole society. And it is necessary to form a coordinated and interactive policy mechanism of control and decision-making from the three aspects of land market, policy regulation and social supervision.