国家级新区的时空分布、战略定位与政策特征——基于新区总体方案的政策文本分析

The Spatial-Temporal Distribution,Strategic Positioning and Policy Characteristics of State-Level New Areas

国家级新区承载着服务国家战略、协调区域发展和政策先行先试的重要功能,其发展历程在某种程度上可以说是中国改革开放进程的缩影。对已有国家级新区总体方案文本进行解读、比较、分析和归纳,有利于全面理解国家级新区的战略定位与政策体系,审视其历程,预见其发展。国家级新区设立时间分布的层次性体现了改革从"摸着石头过河"走向全面深化,区域分布的战略性体现了国家区域发展从非均衡发展走向协调发展。国家级新区战略定位的核心要素总体概括为国家战略中心城市、开放型区域经济引擎、改革发展创新试点、高端产业基地、生态示范园区,但是部分新区核心功能定位缺失。国家级新区政策支持体系在很大程度上体现了与新区战略定位、区域分布、发展状况的匹配,但是仍然存在着政策支持与新区实际状况脱节的现象。应当从明晰新区战略定位与核心功能、增强新区政策支持与战略定位的匹配度、促进政策体系与经济社会发展以及国家改革进程动态适应、推动政策试验与学习机制调整转型等方面促进新区的健康、创新发展。

The state-level new areas,of which the development course can be said to be the epitome of the process of China s reform and opening-up to some extent,are endowed with vital functions of the service for country strategy,coordinating regional development and the trial implementation of policy in advance.To interpret,compare,analyze and induce the existing general planning text of the state-level new areas is propitious to cognize the strategic positioning of the state-level new areas and their policy system,review their course,and foresee their development comprehensively.The hierarchy of temporal distribution established by the state-level new areas embodies that the country＇s reform has experienced a change from ＂crossing the river by feeling the stones towards comprehensively deepening reform,while the nature of strategy of regional distribution embodies that the country s regional development strategy has also experienced a change from non-balanced development towards coordinated development.The core elements of state-level new areas＇ strategic positioning can be generally summarized as the country＇s strategic center cities,engines for open regional economy,the experimental units for reform,development and innovation,highend industrial bases,and ecological demonstration zones,but part of these new areas are deficient in their positioning of core functions.To a large extent,the policy support system for the state-level new areas embodies that it matches with the new areas＇ strategic positioning,regional distribution and their development status,but the disjointed phenomenon between policy support and the new areas＇ actual situation still remains.The healthy and innovative development of the new areas should be promoted in aspects of the perspicuity of the core functions of the new areas＇ strategic positioning,the enhancement of the matching degree between the new areas＇ policy support and their strategic positioning,the improvement of the dynamic adaptation between policy system,economic and social development and the country＇s reform process,the promotion of the adjustment and transformation of policy experiment and learning mechanism.