国家级新区：实践与目标的偏差及政策反思.docVIP

PAGE PAGE 11 国家级新区：实践与目标的偏差及政策反思 Nation New District policy: Reflection on the implementation deviation 刘继华 荀春兵 【摘要】本文基于国家级新区发展历程和成效的分析，指出国家级新区作为重要的区域政策，其政策目标和发展成效之间存在偏差。主要体现在国家级新区数量快速扩张，增长极核作用逐步减弱；总体规划规模过大，助推中心城市蔓延；土地使用粗放，“产城分离”问题较为突出；政府主导开发，加剧了地方政府的债务风险等方面。而问题的根源在于国家级新区政策体系的理论基础不适当、出台过程不规范和执行过程缺监管，导致政策效力较低，同时带来资源错配和产能过剩的风险。论文最后提出一系列建议，包括：暂停国家级新区的审批；评估既有国家级新区选址和规划的科学性；明确监管责任，加强实施过程的政策指导；完善实施机制，合理界定政府与市场的边界等。 Abstract:?Analyzing the trend and performance of the National New Districts, this paper indicates an implementation deviation of the National New District policy. The significance of National New District as growth poles has reduced while its number is still growing. The dominating scale of National New District expands the central city. As well, the land use efficiency is low, and the industrial zones depart from the residential areas. Moreover, the local governments have deeply trapped in debt because of large scale of investment in land development and infrastructure construction . These problems origin in the incorrect understanding of regional theory, policy-making bias, and the implementation deviation. All these defects make the effectiveness of National New District policy reduced, and bring mismatches of resources and risks of industrial overcapacity. In conclusion, the paper offers a few suggestions including 1) to cease the approval of more National New Districts, reevaluating existing Districts; 2) to clarify supervisor’s role and duty, strengthening the policy implementation; and 3) to improve the mechanism of implementation, differentiating the government and market. 【关键词】国家级新区；政策制定；政策执行 Keywords： National New District， policy making， policy implementation 国家级新区是由国务院批准设立的以相关行政区、特殊功能区为基础，承担着国家重大发展和改革开放战略任务的大尺度、综合型城市功能区（国家级新区发展报告，2015）。目前国内学者对国家级新区的研究主要集中在四个方面：一是国家级新区的价值意义研究。李晓江（2012）提出国家区域空间战略演进的“钻石结构”，即珠三角、长三角、京津冀和成渝城镇群形成国家区域空间战略的四大核心增长极，国家级新区是带动中心城市、进而带动整个城市群发展的核心引擎；彭小雷等（2014）同样认为设立国家级新区本质上属于国家的一种“增长极战略”，而西部地区国家级新区的战略意义更多的是促进“东西协作”、实现“以点带面