ABSRTACT: to distinguish and analyze the realistic challenges of the implementation of the main functional area planning, which is directed to the coordinated development of the region and the realization of the strategic goal of common prosperity, s-CAD public policy evaluation method was used to evaluate the policy performance of“Shadow Index” for optimizing the implementation of main functional area planning and achieving the goal. Conclusion: the implementation strategy of“Dual fair value + three-stage fair realization” is helpful to realize the balance of rights and interests of regional land development “Shadow Index” intervention to achieve the equalization of land development rights and interests in different main functional areas has a high degree of local recognition, the“Shadow Index” and the central financial transfer payment together constitute the regional balanced development guarantee mechanism of“Horizontal transfer payment + vertical transfer payment”, it is conducive to the implementation of central strategic intention and the autonomy of local development. Based on the S-CAD method, the paper evaluates the two policy scenarios of Hubei province with or without“Shadow Index” intervention, the policy with“Shadow Index” is easier to reach the goal of optimizing the pattern of development and protection in terms of policy effect and efficiency.