【作者】 吕中国；

【导师】 强昌文；

【作者基本信息】 安徽大学 ， 经济法学， 2014， 博士

【摘要】 我国区域发展战略先后经历了区域均衡发展战略、区域非均衡发展战略、区域非均衡协调发展战略和统筹区域协调发展战略的演变。统筹区域协调发展战略是新阶段下我国区域发展的最新战略。主体功能区战略的提出是为了适应我国当前国土空间及开发的特点。对主体功能区进行科学规划、制定科学政策、实施科学管理,既是区域发展对科学发展观的响应,也是统筹区域协调发展战略在空间上的落实。作为我国区域发展的顶层设计,主体功能区规划定位在于：国土空间开发的战略性、基础性和约束性规划。主体功能区规划需要相关制度的有力保证,必须在制度层面上进行政策引导、法制保障、措施落实,增强制度供给、建立健全规划实施机制,同时加强对规划实施情况的监督检查,方能确保主体功能区规划落到实处。然而,我国相应的制度供给严重不足,主体功能区规划亟待法治化。然而,西方区域规划及区域管理方面获得的成功经验,对于主体功能区规划实践有较强的示范效应,其中,加强法制建设是区域规划及区域管理共同的经验。因此,法学特别是经济法学界理应对主体功能区规划做出回应,同时,软法理论以及“经济软法”可作为研究主体功能区规划、主体功能区规划实践的重要理论工具,此方面的研究反过来会进一步发展软法理论和经济法学理论。就主体功能区规划的法律属性而言,首先,公共政策属性是主体功能区规划的本质属性,其虽不具有法律形式,但具有可问责性,各主体功能区规划也“具有法律效力”,因此,作为公共政策的主体功能区规划属于软法的范畴。作为软法,主体功能区规划具备以下四个软法性特征：创制方式与制度安排富有弹性；创制和实施具有更高程度的民主协商性；实施方式的非国家强制性；效力实现的非司法中心主义。其次,主体功能区规划与经济法具备高度的契合,其调整对象是经济法调整对象的细化,其价值目标、核心范畴与经济法理念是高度契合的,主体功能区规划实践是克服两种失灵的双重困境的实践之一,而经济法恰恰始于“市场失灵”与“政府失灵”的克服。进一步来看,主体功能区规划本身可以说是一部中国特色的宏观调控法律,其创制与实施是中国经济法走上公共治理之路的新实践。就主体功能区规划的软法机制而言,我国当前传统的硬法的缺失将软法机制推至制度的前沿,软法机制成为当前破解主体功能区规划难题的重要制度设计,可以说,软法之治顺应了主体功能区规划的需求,有助于差别化的区域管理的实现；软法机制不但能对硬法机制进行必要的补充,在某些制度安排上也能独当一面。四个软法机制构成了完备的软法机制体系：规划指标确立机制奠定基础,民主协商机制提供保障,利益补偿机制建立平衡,绩效考核机制激发动力。就主体功能区规划的硬法保障而言,其必要性来源于软法机制的缺陷、国外空间规划与特定区域管理对“硬法”的倚重以及当前我国当前硬法保障的缺位。结合我国实际,可以从宪法保障、基本法保障、特别法保障等几个方面构建较为完备的法律规范和制度基础。由于单纯的软法机制和硬法机制都不能满足主体功能区规划的法制需要,又由于公共治理视角的实践需求以及从制度变迁视角的理论需求,我们可以运用硬法、软法混合理论(theory of hybridity),构建主体功能区规划混合法治理模式,具体制度构建模式为：模式一是软法奠定基础,硬法动态跟进；模式二是软硬法并举,各司其职。后者为主体功能区规划混合法治理模式的最主要表现。为最终实现主体功能区规划法治化的目标,首先要明确政府的角色定位,软硬法分工与合作,限制与控制政府公权力的滥用与扩张；其次要结合我国当前的政治体制及软硬法各自的优缺点,采取体制内外相结合的方式对主体功能区规划进行监督；再次,如果主体功能区规划创制与实施主体特别是政府机关超越行为边界,违规甚至违法作为或不行为,就要启动法律责任追究机制,法律责任形式分为肯定式与否定式；最后,对于政府行为对公民已经造成的权益损害,对应于软、硬法,可从非诉程序与诉讼程序这对“二元结构”入手,进行事后的法律救济。更多还原

【Abstract】 The regional development strategy of our country has gone through the evolution of regional balanced development strategy, non-balanced regional development strategy, regional non-balanced development coordinated strategy and regional coordinated development strategy. Overall regional coordinated development strategy is the latest strategy of China’s regional development in the new phase.The main function region strategy is put forward in order to adapt to the characteristics of the current land space and development in China. Scientific planning, scientific policy making, implementation of scientific management for main functional areas is not only a response to the Scientific Outlook on Development in regional development, also to coordinate regional development strategy in the space of the implementation. As the top-level design of regional development of our country, the main functional area planning position is:national spatial development plan of strategic, fundamental and binding.The main functional area planning needs the powerful guarantee of related system. We must carry on the policy guidance, legal protection, Implementation of measures in the aspects of system and enhance the system supply, establish and improve the planning implementation mechanism. Also, we must strengthen the supervision and inspection of the implementation of the planning to ensure the main functional area planning put into practice. However, the system supply shortage in our country, the main functional area planning needs to be under the rule of law. However, the successful experience of the western regional planning and regional management, has a strong demonstration effect, on the main functional area planning practice, among them, strengthen legal system construction is a common experience of regional planning and management.The law, therefore, especially the economic law should respond to the main functional area planning, At the same time, the soft law theory and "soft law in economic" can be used as an important theoretical tool for the research on main functional area planning practice, the research in this respect will in turn further promote development of soft law theory and the theory of economic law.On the legal attribute of the main functional area planning, first of all, public policy is the main essence of the function area planning. It has no legal form, but has the accountability. The main functional area planning will "have the force of law"; therefore, as a public policy, the main functional area planning belongs to the soft law category. As soft law, the main functional area planning has the following four characteristics:elasticity in initiative way and the institutional arrangements, higher degree of consultative democracy in creation and implementation; The non national mandatory in implementation; non judicial centrism in Legal Realization. Secondly, the main functional area planning and economic law have highly fit, its adjustment object is a refinement of the regulated objects of economic law, its value target and core category and the idea of economic law is highly fit, its practice is one of the practice in overcoming two kinds of ineffectiveness of double troubles, and economic law begins with overcoming the "market failure" and the "government failure". A further point of view, the main functional area planning itself can be said to be a Chinese characteristics of the macro-control law, its formulation and implementation is a new practice, that is, China’s economic law took to the road of the new public management practice.In the terms of soft law mechanism of the main functional area planning, due to the lack of traditional hard law at present in our country, the system mechanism of soft law will be pushed to system frontier, soft law mechanism has become an important system design which solves the hard problems of the main functional area planning. It can be said; that the rule of soft law conforms to the requirements of the main functional areas planning. It contributes the implementation of the different regional management. Soft law mechanism not only can be a necessary supplement to the mechanism of hard law, in some institutional arrangements can be independent. Four soft law mechanisms constitute the system of soft law mechanism system:the formation mechanism of planning index as the foundation, the democratic consultation mechanism as a guarantee, the benefit compensation mechanism as the balance, and the performance evaluation mechanism as a motive power. On the protection of hard law of the main functional area planning, its necessity from the defect of the soft law mechanism, dependence on hard law in foreign space planning and regional management and the lack of hard law guarantee in China. Combined with the reality of our country, a comparatively complete system of legal norms and foundation can be constructed from the constitution, the basic law and special law protection.Because of soft law mechanism and the mechanism of hard law simply can not meet the need of main functional area planning legal system, and the practice demand from the perspective of public governance and the practice theory demand from the perspective of institutional change, we can use the mixed theory of soft and hard law (theory of hybridity) to construct the main functional area planning hybrid governance mode the concrete system construction mode:mode one is to lay the foundation of soft law, hard law dynamic follow-up; mode two is soft and hard law simultaneously take effect, each do its job. The latter is the main expression of hybrid governance mode for the main functional area planning.To ultimately achieve the goal of the main functional area planning under the rule of law, firstly, we should clearly define roles of the government, limit and control government power abuse and expansion through the division of labor and cooperation of hard and soft law. Secondly, combined with the advantages and disadvantages of Chinese current political system and soft and hard law, we can supervise the implementation of the main functional area planning through taking forms of the combination of inside and outside of the system. Again, if the main functional area planning legislation and execution subject especially the government acts beyond the boundary, irregular and even illegal act or not act, we must start the mechanism of legal liability, legal liability form is divided into positive and negative. Finally, if the interests of citizens have been damaged by the government behavior, corresponding to soft and hard law, we can carry on the legal relief through the" dual structure"(Non litigation procedures and Procedures) afterwards.更多还原