Major Function Oriented Zone: New Method of Spatial Regulation for Reshaping Regional Development Pattern in China

Newest planning methods implemented by Chinese government are promoting a coordinated regional development and shaping an orderly spatial structure by applying the regulation of territorial function. This article analyzes the problems of spatial planning and regional strategy caused by the wrongly-set primary goal of economic development; it states that the three-fold objective of competitiveness, sustainability, and welfare fairness shall be the principal for China to implement the spatial regulation in the new era; it discusses about theoretical thoughts and technology framework of conducting the ′Major Function Oriented Zone′ based on their different major functions that each region plays in urbanization and industrialization, ecological constructions, grain productions, and protection of natural and cultural heritages; it introduces the new concept of ′Major Function Oriented Zone′ that include the major functions category, the stereo regional equilibrium mode, the two-level zoning specification, and the territorial development intensity; it offers a zoning scheme that defines development-optimized and development-prioritized zones as regions with massive urbanization and industrialization, development-restricted zones as ecological constructing or grain producing regions, development-prohibited zones as natural and cultural heritage protecting regions; and finally it addresses the main obstacle for implementing ′Major Function Oriented Zone′, which is the institutional arrangement of the supreme goal of high GDP growth rate that is currently being implemented.

Complementary Zoning Frameworks for Sustainable Management of Eco-economic Capital:a Case Study of Lijiang,China

We propose two zoning frameworks for regional decision-makers to regulate eco-economic capital in Lijiang,southwest China,using an index system,layer overlay,and GIS spatial analysis.The frameworks include eco-economic zoning and major function-oriented zoning,with an emphasis on ecoeconomic capital and human activities.The two frameworks share common advantages in top-down resource regulation by a certain function and the pursuit of competitiveness,sustainability and welfare fairness.Their differences in development orientation,functional links and scale suitability provide a complementary approach for regional decisionmakers.The frameworks will help to understand complex eco-economic resource patterns and foster appropriate regional regulation strategies.

Function Zoning of the Major Function Development-optimized County:A Case in Shangyu,Zhejiang

The 11th Five Year Plan has divided national functional zones in the basic unit of county-level administrative region.After implementation of national Major Function-oriented Zones (MFOZ) at prefecture and county levels,the spatial development sequence must be specified,development intensity must be limited,oriented zones must be designated and "red line" areas of spatial governance must be defined.In view of the above,choosing a typical county area and exploring its functional zoning after orienting its major functions will supply reference for carrying out the national spatial planning in the 12th Five Year Period,and it will also provide experience for the study of function regionalization which is the theme of MFOZ in the present academic circles.In this paper,the authors take Shangyu County as an example to study the general principles,train of thought of county-level functional regionalization in development-optimized areas,and to explore its reasonable functional zoning plan.Consequently,the authors present five principles and suggest a function-oriented zoning plan with 2 levels and 4 types.

On the Historical Background,Scientific Intentions,Goal Orientation,and Policy Framework of Major Function-Oriented Zone Planning in China

主体功能区规划是新世纪以来我国在地域空间规划方面的一次重大创新和实践,"十二五"规划上升为国土空间开发和区域协调发展领域的国家战略之一。本文从改革开放以来我国区域发展失衡的三大主要问题:区域发展差距扩大、城镇化盲目、国土开发无序的分析入手,论述了通过地域空间规划确定合理的地域功能格局和国土空间开发结构的客观需求。进而探讨了地域功能的科学内涵和形成机制,揭示了自然生态本底功能和人类活动需求功能复合形成地域功能的过程;并结合主体功能区规划编制中的关键科学问题,如主体功能识别的指标体系选择、功能区的空间组织以及功能开发导向的确定等关键科学问题,探究了解决的具体路径和相关方案,并就支撑主体功能区规划实施的相关政策导向和改革框架进行了阐述。最后,从规划职责体系、空间规划体系和科技支撑体系三个方面对今后的实施、发展和完善主体功能区战略进行了讨论。

Examining the influence of the implementation of Major Function-oriented Zones on built-up area expansion in China

China had implemented the national strategies for Major Function-oriented Zones （MFOZs） to realize the goal of national sustainable development since 2010. This study analyzed and compared spatio-temporal characteristics and differences in built-up area for China＇s MFOZs using a China＇ s Land Use Database （CLUD） derived from high-resolution remotely sensed images in the periods of 2000-2010 and 2010-2013. To sum up： （1） The percentage of built-up area in each of the MFOZs was significantly different, revealing the gradient feature of national land development based on the distribution of the main functions. （2） Annual growth in built-up area in optimal development zones （ODZs） decreased signifi- cantly during 2010-2013 compared with the period 2000-2010, while annual growth in built-up area in key development zones （KDZs）, agricultural production zones （APZs） and key ecological function zones （KEFZs） increased significantly. （3） In ODZs, the average annual increase in built-up area in the Yangtze River Delta region was significantly higher than in other regions; the average area increase and rate of increase of built-up area in KDZs was faster in the western region than in other regions; average annual area growth of built-up area in APZs in the northeast, central and western regions was twice as high as the previous decade on average; the annual rate of change and increase in the dynamic degree of built-up area were most notable in KEFZs in the central region. （4） The spatial pattern and charac- teristics of built-up area expansions in the period 2010-2013 reflected the gradient feature of the plan for MFOZs. But the rate of increase locally in built-up area in ODZs, APZs and KEFZs is fast, so the effective measures must be adopted in the implementation of national and regional policies. The conclusions indicated these methods and results were meaningful for future regulation strategies in optimizing national land development in China.

Effects of Grassland Restoration Approaches in Different Major Function-oriented Zones of the Headwater Region of the Yellow River in China

Given the high alpine grassland coverage and intensive animal grazing activity, the ecosystem and livelihood of the herders are extremely vulnerable in the headwater region of the Yellow River. A series of programs have been implemented by the Chinese government to restore degraded grasslands in this region, and major function-oriented zones(MFOZs) applied in 2014, have divided the region into three zones, i.e., the development prioritized, restricted, and prohibited zones, based on environmental carrying capacity, as well as the utilization intensity of grassland. This study identified various restoration approaches adopted in different MFOZs, and assessed the effects of the approaches in order to determine the most effective approaches. We collected 195 questionnaires from herders to analyze the effects of the various restoration approaches, and additional remote sensing and statistical data were also used for the analysis. Four distinct differences in the ecological and socioeconomic characteristics were found in three MFOZs.(1) Five technologies were applied in the study areas.(2) The grassland recovery rate was higher in development prioritized zones than in restricted and prohibited zones during 2000 and 2016, and especially high and very high coverage grasslands increased in the areas where crop-forage cultivation and grass seeding dominated in the prioritized zones.(3) The net income of households in the development prioritized zone was the best of all three zones.(4) The degree of awareness and willingness of herders to restore grassland was more positive in development prioritized zones than in restricted zones, where more herders adopted approaches with a combination of enclosure + deratization + crop-forage cultivation + warm shed. Based on these findings, it is recommended that decision-makers need to increase their efforts to narrow the gap of willingness and behavior between herders and other stakeholders, such as researchers and grassland administrators, in order to ensure grassland sustainability in the MFOZs. It is also beneficial to understand the effects of restoration on the ecological carrying capacities in different zones depending on the different development goals.

全国资源环境承载能力监测预警(2014版)学术思路与总体技术流程

建立资源环境承载能力监测预警机制,是全面深化改革的一项创新性工作。从资源环境承载能力的科学内涵出发,以区域可持续发展为指向,探究资源、环境等构成的承载体——自然基础同承载对象——人类生产生活活动之间形成的"压力-状态-响应"过程,提出资源环境承载能力预警是从资源环境约束上限或人口经济合理规模等关键阈值开展的超载预警,以及从自然基础条件变化或资源利用和环境影响变化态势开展的过程预警的学术思路。在探讨承载能力预警指标体系选取原则的基础上,构建陆域和海域差异化的预警指标体系和总体技术流程。采用土地资源压力、水资源利用强度、环境胁迫程度、植被盖度变化作为基础指标进行地域全覆盖评价;针对城市化地区、农业地区、牧业地区、生态地区,分别选择灰霾污染程度、耕地面积增减状况、草蓄平衡指数、生态环境质量变化状态作为专项指标,确定各类专项指标的关键阈值并进行分类评价;最后进行复合,形成在鲜明主体功能定位指向下的差别化评价方法、取得具有一致性表达的评价结果,并开展资源利用效率和环境污染压力两方面的过程评价,以辅助反映中国资源环境承载能力和可持续发展能力预警状态,为提出限制性措施建议和完善监测预警机制提供科学依据。

汉江流域经济区与主体功能区布局的协同发展研究

流域经济是当前区域经济发展战略关注的热点之一,科学合理的流域发展模式,是实施流域可持续发展的基本保证,而主体功能区布局为流域经济区从宏观和整体统筹方面提供了新的视角和思路.以汉江生态经济带为研究区,借鉴主体功能区规划的思想对各单元开展国土空间开发水平综合评价,分析经济带内各地区现有发展基础、资源环境承载力、生态保护重要性的空间格局特征和开发水平的空间分异特征,找出流域发展目前存在的主要问题,并根据主体功能区的区划特征和规划布局,寻求汉江生态经济带发展与区域内主体功能区布局之间的耦合协同,并提出空间协调衔接、功能耦合调控、分工协作一致的协同路径.

主体功能区划及其生态补偿机制的地理学依据

"主体功能区"是"十一五"规划纲要中提出的全新的发展理念和区域开发模式,对于地理学而言具有重要的意义:首先,它是地理学参与社会实践的重大突破。其次,它孕育着重大的理论内涵,是地理学整体性、差异性、区域性和综合性思维的重大发展。从"功能区"的理论视角入手,从区域功能的角度来辨识和构建区域是地理学传统区域观的重大发展,对于学科发展具有极其重要的意义。同时,主体功能区不能仅仅停留在科学概念的层面,必须与具体的机制和配套政策相结合才能引领区域协调发展的实践,而生态补偿机制正是其中的重要内容,从学科基础的角度进行分析,指出区域外部性、自然格局、区域结构、区域本底性质等地学基础要素是建立基于主体功能区的生态补偿机制的影响因素和重要科学依据。

基于SLEUTH模型的主体功能区划分后的土地利用变化

为解决区域问题,该文提出一种基于SLEUTH(slope land use exclusive layer urbanization transportation hillshade)模型的主体功能区划方法,可以根据土地利用的变化趋势对已划分好的主体功能区进行适当调整。以快速城镇化典型区苏锡地区为例,运用SLEUTH模型对已划分好的主体功能区从2009-2030年在不同情景下进行模拟,直观地反映出主体功能区划对土地利用变化的影响,据此对初次划分中由于条件模糊而难以判断的部分区域进行调整和优化,从而得到苏锡地区完整的主体功能区。结果表明该方法使主体功能区划具有直观的预测性和可调整性。该方法为合理实施主体功能区划提供技术性保障。

中国环境污染的时空差异与集聚特征

通过地市单元和主体功能区单元的定量分析,研究2005～2012年中国环境污染物排放的时空变化和空间集聚格局,提出降低污染物排放强度的对策建议。结果表明：1环境污染物排放强度呈优化开发区域-重点开发区域-农产品主产区-重点生态功能区依次递减态势,各类主体功能区水环境面临的污染物胁迫程度持续加剧,且以农产品主产区和重点生态功能区最为突出,尽管优化开发区域和重点开发区域的大气污染物排放量呈现小幅下降,但仍然是大气污染物胁迫程度最高的地区。2地市单元水环境受污染物胁迫态势＂总体在加剧、局部有缓解＂,东北、东部、中部板块的大部分区域以及西部板块的成渝、新疆中部、呼包鄂等地区呈高排放区连片分布格局;大气环境受污染物胁迫态势＂总体较稳定、局部有缓解＂,高排放区主要位于山西、内蒙古中西部、陕甘宁豫沿黄地带、环渤海、长三角等地区。3中国环境污染排放具有显著的空间集聚效应且呈现增强趋势,其中,华北地区已经成为高污染物排放的主要集聚区,并表现出较强的路径依赖与空间锁定。

当前背景下的省域主体功能区划分区体系与一般思路

《全国主体功能区规划》近期已由国务院正式公布,省域主体功能区相关概念内涵、区划原则和区划依据更加明晰,认为以往基于《省级主体功能区划分技术规程(试用)》的主体功能区划的一般思路需要作出适当调整.基于新的主体功能区划背景和前提条件,在总结与研究主体功能区的概念演变、当前的"4+3+2"分区体系的基础上,结合辽宁省的主体功能区划方案(考虑到辽宁省主体功能区划方案还需必要的调整且尚处于未公开阶段,故仅作例证使用),从省域范围内主体功能区类型确定、基础方案形成、面积比例构成及空间结构合理性判断等若干基本环节提出我国省域主体功能区划的一般思路.

面向国土空间规划的省级主体功能区调整优化研究——以陕西省为例

主体功能区划分在国土空间规划中具有基础性作用和战略性价值,调整和优化原有的主体功能区方案是省级国土空间规划面临的主要任务之一。该文从传承与创新相结合的原则出发,提出了面向国土空间规划的省级主体功能区调整优化思路:综合评判近10年来省级主体功能区方案实施成效与存在的问题,借鉴原有技术规程提出基于地域功能识别指标体系的主体功能区划分方案;利用国土空间“双评价”结果,通过一定的集成函数与规则,提出基于“双评价”分析的主体功能分区方案;最后,将两种分区方案进行耦合分析,并进一步衔接国家、省级重大战略规划,最终形成省级主体功能区调整优化方案。研究发现:基于“双评价”分析的分区方案与基于地域功能识别指标体系的划分方案具有较高的耦合度,可达到70%以上;利用“双评价”结果能够很好地识别内部地理环境差异明显的县域单元,可为以乡镇为单元的主体功能区细化提供有力的支撑;基于陕西省案例提出的省级主体功能区调整优化思路和方法,可为我国国土空间规划中省级主体功能区调整优化提供参考依据。

主体功能区战略的实施评估与前景展望

主体功能区作为我国工业文明时期瞄准生态文明的有益尝试和探索,可划分为2个阶段。文章对党的十八大以前的主体功能区规划研制阶段,以及党的十八大后主体功能区上升为国家战略和基础制度阶段的特征进行了梳理。对主体功能区战略思想深入人心、主体功能区战略格局基本形成、主体功能区分类发展成效显著、主体功能区制度初步建立等成效问题进行了评估和总结。提出主体功能区将在中国式现代化建设中继续发挥更大的战略性、基础性作用。主体功能区作为贯彻中国共产党领导、发挥社会主义制度优势、自上而下实现现代空间治理的重大战略、布局方案和制度安排,应进一步强化以人民为中心、以高质量发展为首要任务、以构建新发展格局为战略基点的国土空间开发保护指向,拓展满足人民群众美好生活向往和国家安全需要的新功能,依托空间治理体系健全更为精准的功能区发展指引和配套政策。

功能区视角下黄土高原碳公平性的时空分异与影响因素

In this paper, we firstly constructed a theoretical framework based on major function-oriented zones(MFOZs). Then taking the Loess Plateau(LP) as the study area, we revealed the spatio-temporal differences and influencing factors of carbon emission equity by using the carbon equity model, Theil index, and Geo-detector. The results showed that:(1) From 2000 to 2017, the carbon equity of the Loess Plateau showed a downward trend, but the ecological carbon equity remained above 2.3, which was significantly higher than the economic carbon equity.(2) The ecological carbon equity in the Loess Plateau increased from the core of urban agglomeration to the periphery. The spatial pattern of economic carbon equity changed from low in the northeast and high in the southwest to low in the north and high in the south. The ecological support coefficient and economic contribution coefficient of provincial capital cities and their surrounding districts remained low since 2000.(3) The equity of carbon emissions in each function-oriented zone in the Loess Plateau was compatible with its orientation. The ecological carbon equity of the key ecological functional zones(KEFZs) was significantly higher than that of the key development zones(KDZs) and the major agricultural production zones(MAPZs), while the economic carbon equity of the KDZs was significantly higher than that of the MAPZs and the KEFZs.(4) The formation and evolution of the spatial differentiation pattern of carbon equity in the Loess Plateau was the result of the long-term interaction effects of geographic location, social economy, science and technology level, and policy system. Among them, eco-environmental protection policy, government financial support, and geographical location are the key driving factors for the spatial pattern of ecological carbon equity. Geographical location, social economic level, and science and technology level are the key factors driving the spatial pattern of economic carbon equity. According to this study, to achieving carbon equity on the Loess Plateau region, what the key approaches are to fully implement the planning of MFOZs, design differentiated regional carbon compensation mechanisms, improve energy efficiency and ecological environment capacity, and build a collaborative regional carbon emission governance system. This research can not only provide an effective framework for analysing the carbon equity, but also offer policy implication for promoting carbon emission reduction and achieving high-quality development goals in the ecologically fragile areas.

鄂尔多斯主体功能区划分及其土地可持续利用模式分析

主体功能区划分和土地可持续利用模式设计,对解决我国经济快速发展过程中社会经济和生态环境之间出现的矛盾具有重要的意义。选取位于我国北方农牧交错带的鄂尔多斯市为研究区,以全市52个乡(镇、苏木)作为基本研究单元,采用研究区2008年数据,基于资源环境承载力、现有开发密度和区域发展潜力,从土地资源、水资源、矿产资源、生态安全度、土地利用强度、水资源开发强度、矿产资源开发强度、区位优势、科技潜力和经济活力等构建了主体功能区划分的指标体系,并运用变异系数法确定各指标权重,最终采用聚类分析与三维魔方图相结合的方法,将鄂尔多斯主体功能区划分为优化开发区、I级重点开发区、Ⅱ级重点开发区、限制开发区和禁止开发区,提出了五类主体功能区的协调发展机制和各功能区未来发展定位。分别选择各主体功能区内部的典型乡镇,优化开发区的达拉特旗树林召镇、I级重点开发区的伊金霍洛旗乌兰木伦镇、Ⅱ级重点开发区的乌审旗苏力德苏木和限制开发区的鄂托克旗阿尔巴斯苏木,基于1978年、1988年、2000年和2008年土地覆被数据,通过近30年来的土地利用变化和景观格局的分析,结合主体功能区的总体定位提出了土地可持续利用模式。结果对推进当地生态重建和促进土地可持续利用提供科学的支撑。

主体功能区作为国土开发的基础制度作用

十八届五中全会将主体功能区建设提高到作为我国国土空间开发保护基础制度的战略地位。在回顾主体功能区规划的时代背景、介绍规划方案基本概念和主要内容的基础上,文章勾勒出主体功能区作为国土空间开发保护基础制度的解析框架,分析了主体功能区对于优化国土开发保护战略格局、完善区域政策和地方政府治理体系、整合各类空间规划的作用机理,最后从完善政府职责体系、推进空间规划立法、修订空间规划体系和加强科技基础支撑四个方面提出落实主体功能区规划基础制度作用的建议。

中国主体功能区划方案

中国主体功能区划方案是刻画未来中国国土空间开发与保护格局的规划蓝图,主体功能区规划已上升为主体功能区战略和主体功能区制度。2004-2014年,笔者组织系列研究项目,配合国家编制主体功能区规划,研究地域功能基础理论和功能区划技术流程,提出国家和省区尺度进行空间管制的地域功能区域类型为城市化区域、粮食安全区域、生态安全区域、文化和自然遗产区域等4类,在此基础上转化为以县级行政区划为单元的优化开发、重点开发、限制开发和禁止开发4类主体功能区。研制了由水资源、土地资源,生态重要性、生态脆弱性、环境容量、灾害危险性、经济发展水平、人口集聚度和交通优势度等9类可定量指标及战略选择为1项定性指标构成的地域功能识别指标体系,进行了单项指标评价,开发并运用地域功能适宜程度综合评价指数进行了综合评价,测算了各省区保护类区域下限、开发类区域上限以及开发强度等关键参数;研讨了以规划为应用指向的主体功能区划分方法,形成中国首部主体功能区划方案,按照全国主体功能区规划口径,2020年与2010年相比,全国国土空间开发强度从3.48%增加到3.91%;按照省区集成的主体功能区规划口径,优化、重点、限制开发区域的土地面积比重分别为1.48%、13.60%、84.92%,城市化、粮食安全、生态安全区域的土地面积比重分别为15.08%、26.11%、58.81%。结合区域发展水平、资源环境承载状态、民生质量等相关分析,给出了主体功能区的主要特征。通过区划方案校验,国家和省区分两级采用笔者主持制定的《主体功能区划技术规程》互动完成的全国主体功能区划方案,同预判的吻合程度多为80%以上。

长江经济带国土空间结构优化研究

文章首先分析了1978年以来长江经济带空间结构发育的主要特征。结果显示,长江经济带形成了"两横三纵"的国土空间开发架构,人口和GDP呈现向沿海沿江集聚的态势,且经济发展水平由下游向上游呈梯级下降,农业生产空间向上游、山区转移且多与贫困地区交叠,国土空间整体开发强度较大,资源环境压力突出。由此提出,长江经济带国土空间优化应遵循国土空间结构演化的基本规律,按"点、线、面"形式组织国土空间结构。从"面"上看,应以主体功能区规划为基础,细化空间功能单元和区域类型,控制开发强度,近期应对一些需求迫切的关键区域加以重点关注。从"线"上看,主要通过城市群核心城市节点间快速连接轴线的建设,完善网络化、开放型的国土空间系统。从"点"上看,应以国家级城市群、国家新区建设为重点,培育新型增长极(群)。同时,通过上述途径建立合理的工业生产与城镇生活空间、保障农业生产空间、优化农村生活空间、建立多样化生态屏障空间,促进公平发展。

重庆市主体功能区识别的主导因素与空间稳定性约束机理

主体功能区规划已上升为国家制度和战略,对中国长期空间发展格局优化与再组织将发挥积极的引导和约束作用。从地域性角度出发,探寻主体功能区发生性(形成与演化)和反馈性(识别与规划)时空机理与规律是地理学具有时代意义的重要科学问题。以重庆市为例,通过国土空间开发条件综合评价,识别了主体功能区划分的适宜性空间格局。基于对西南山区发展约束条件的基本认识,提出了地域主体功能空间分异的主导性约束假设,设定地形和区位为原生性主导因素,验证了其与区划指标系统的定量关联性,以此为基础解析了主导因素约束机理并提出了地域主体功能区的空间稳定性机制。研究发现:①开发与保护适宜性识别结果的格局指向清晰。城市化适宜的区域主要集中于都市区和部分周边区县,区域副中心(万州和黔江)适宜性也相对较高。生态保护适宜的区域集中于渝东北秦巴山区及部分三峡库区区县,同时包括渝东南武陵山区所在区县。②地形和区位因子在本区域对主体功能区的识别与形成具有主导约束作用。回归分析显示,主体功能区划指标与地形因子相关性水平达到显著的超过70%,区位因子超过40%;两者综合后与区划标志变量(A、B指数)的相线性相关拟合度R2均超过0.8;地理探测器发现,地形和区位因子对区划指标的约束性分别有9个和7个达到0.05显著性水平,对A、B指数的解释度分别约为70%和60%,两者叠加后,约束水平全部达到显著,对A、B指数的解释度在90%左右。③空间稳定性机制表现为两个方面,其一是基于主导因素约束的稳定性传递机制,称为客观稳定性;其二是基于指标体系的局域相对性和算法的内部抵消机制,称为主观稳定性。两种机制的协同性验证了区划技术系统的地域适应性和科学性。