“行政区划本身也是一种重要资源”的理论创新与应用
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摘要
行政区划是国家治理体系和组织结构的基本形式,也是中央政府统治和管理全国各地的有效手段,是事关国家政治、经济和社会发展全局的重大战略问题。就"行政区划本身也是一种重要资源"的论断进行多视角的分析,提出"行政区划资源论"这一全新的理论解读。分别从空间、权力、行政和政策角度探讨行政区划的资源属性,并从行政资源的空间配置、生产要素的优化配置、权力资源的空间整合、空间资源的优化重组和政策资源的空间载体等多个角度剖析行政区划的资源效应,最后提出应当将"行政区划资源论"这一新论断积极应用至主体功能区规划、空间规划、空间治理体系建设等实践领域,完善目前行政区划设置和调整的思路与要求,建立健全与国家发展战略及综合配套改革相适应的行政区划体系和管理框架。
Administrative division is the basic form of national governance system and organizational structure, an effective means for the central government to govern and manage all parts of the country, as well as a major strategic issue concerning the overall national political, economic and social development. Since the founding of the People's Republic of China in 1949, the administrative divisions have been adjusted many times in China. The resource effect produced by the adjustment of administrative divisions has certain regularity and particularity. Generally speaking, administrative divisions are the basic means of national administration and increasing governance capacity. The adjustment and policy making of administrative divisions in different periods are based on the needs of social and economic development and national stability and security at that time. The control policies and key points of administrative divisions in different periods are different. The resource effects of administrative divisions in different periods show certain regularities, such as variability and flexibility in the early years of the founding of new China, reversibility and restraint in the period of the Cultural Revolution(1966-1976), and policy and regulation in the 1980 s. In the1990 s, the adjustment of administrative divisions was characterized by disorder and conservatism. After 2000, the adjustment of administrative divisions has developed towards scale and rationalization. Since 2010, the administrative divisions have become standardized and rationalized. From the perspective of economic development, the administrative divisions in China are not balanced enough to take strategic steps of new urbanization, therefore it is difficult to meet the needs of fine social governance in the new era. This paper makes a multiangle analysis on the argument that administrative division itself can be seen as a resource, and puts forward a new theoretical interpretation of the theory of administrative division as resources. Then it discusses the resource attributes of administrative division from the perspectives of space, power, administration and policy respectively, and analyzes the resource effect of administrative division from several aspects, such as the spatial allocation of administrative resources, the optimized allocation of production factors, the spatial integration of power resources, the optimized reorganization of spatial resources, and the spatial carrier of policy resources. Finally, it is proposed in the paper that the new theory of administrative division resources should be applied to the construction of strategic spatial planning and spatial governance system of major function oriented zoning, the ideas and requirements of current administrative division should be improved, and the administrative division system and management framework which are compatible with the national development strategy and comprehensive supporting reform should be established and improved.
Administrative division is the basic form of national governance system and organizational structure, an effective means for the central government to govern and manage all parts of the country, as well as a major strategic issue concerning the overall national political, economic and social development. Since the founding of the People's Republic of China in 1949, the administrative divisions have been adjusted many times in China. The resource effect produced by the adjustment of administrative divisions has certain regularity and particularity. Generally speaking, administrative divisions are the basic means of national administration and increasing governance capacity. The adjustment and policy making of administrative divisions in different periods are based on the needs of social and economic development and national stability and security at that time. The control policies and key points of administrative divisions in different periods are different. The resource effects of administrative divisions in different periods show certain regularities, such as variability and flexibility in the early years of the founding of new China, reversibility and restraint in the period of the Cultural Revolution(1966-1976), and policy and regulation in the 1980 s. In the1990 s, the adjustment of administrative divisions was characterized by disorder and conservatism. After 2000, the adjustment of administrative divisions has developed towards scale and rationalization. Since 2010, the administrative divisions have become standardized and rationalized. From the perspective of economic development, the administrative divisions in China are not balanced enough to take strategic steps of new urbanization, therefore it is difficult to meet the needs of fine social governance in the new era. This paper makes a multiangle analysis on the argument that administrative division itself can be seen as a resource, and puts forward a new theoretical interpretation of the theory of administrative division as resources. Then it discusses the resource attributes of administrative division from the perspectives of space, power, administration and policy respectively, and analyzes the resource effect of administrative division from several aspects, such as the spatial allocation of administrative resources, the optimized allocation of production factors, the spatial integration of power resources, the optimized reorganization of spatial resources, and the spatial carrier of policy resources. Finally, it is proposed in the paper that the new theory of administrative division resources should be applied to the construction of strategic spatial planning and spatial governance system of major function oriented zoning, the ideas and requirements of current administrative division should be improved, and the administrative division system and management framework which are compatible with the national development strategy and comprehensive supporting reform should be established and improved.
引文
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[5]靳尔刚,张文范.行政区划与地名管理.北京:中国社会出版社,1996.[Jin Ergang,Zhang Wenfan.Administrative Division and Management of Place Names.Beijing:China Social Press,1996.]
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[9]Redding S,Sturm D.The costs of remoteness:evidence from the German division and re-unification.American Economic Review,2008,98(5):1766-1797.
[10]Spolaore E,Alesina A,Wacziarg R.Economic Integration and Political Disintegration.The American Economic Review,2000,90(12):176-197.
[11]王开泳,陈田.行政区划研究的地理学支撑与展望.地理学报,2018,73(4):688-700.[Wang Kaiyong,Chen Tian.Geographical prospects of spatial governance through a review on administrative divisions.Acta Geographica Sinica,2018,73(4):688-700.]
[12]汪宇明.中国市管县(市)体制的区域结构关系及发展趋势.经济地理,2000,20(3):18-21.[Wang Yuming.The regional structure relationship and development trend of the city pipe county(city)system in China.Economic Geography,2000,20(3):18-21.]
[13]刘君德.理性认识和推进“强县扩权”.安徽决策咨询,2004,(7):10-12.[Liu Junde.Conceptual knowledge and push on"County Authority".Decision-Making,2004,(7):10-12.]
[14]范今朝.1979年以来浙江省行政区划调整变更的过程及作用:兼论中国未来行政区划改革走向.经济地理,2004,24(4):449-453.[Fan Jinzhao.A preliminary study on the stage and effect of the adjustment of the division of administrative areas of Zhejiang province in China since 1979.Economic Geography,2004,24(4):449-453.]
[15]魏衡,魏清泉,曹天艳,等.城市化进程中行政区划调整的类型、问题与发展.人文地理,2009,24(6):55-58.[Wei Heng,Wei Qingquan,Cao Tianyan,et al.Types,problems and changes for readjustment of administrative divisions in the process of urbanization.Human Geography,2009,24(6):55-58.]
[16]张莉,李伟.1997年以来我国城市行政区划调整的特征与影响.见:海口市规划局.2014中国城市规划年会论文集.海口:海口市规划局,2014:1-11.[Zhang Li,Li Wei.The characteristics and influence of urban administrative division adjustment since 1997.In:Haikou City Planning Bureau.The Proceedings of 2014 National Planning Conference 2014.Haikou:Haikou City Planning Bureau,2014:1-11.]
[17]刘君德,舒庆.论行政区划、行政管理体制与区域经济发展战略.经济地理,1993,13(1):15-17.[Liu Junde,Shu Qing.On administrative division,administrative management system and regional economic development strategy.Economic Geography,1993,13(1):15-17.]
[18]李郇,徐现祥.中国撤县(市)设区对城市经济增长的影响分析.地理学报,2015,70(8):1202-1214.[Li Xun,Xu Xianxiang.Impact analysis of turning counties(cities)into districts to the urban economic growth in China.Acta Geographica Sinica,2015,70(8):1202-1214.]
[19]陈钊.地级行政区划调整对区域经济发展的影响:以四川省为例.经济地理,2006,26(3):418-421.[Chen Zhao.On the regional economic effects about adjustment of administrative regions at prefecture level:A case study of Sichuan province.Economic Geography,2006,26(3):418-421.]
[20]崔凤军,陈晓.“省管县”体制对不同等级行政区域经济发展的影响研究:以浙江省为例.经济地理,2012,32(9):1-7.[Cui Fengjun,Chen Xiao.Regional economic development under the"Province Governing County"system:Taking Zhejiang province as an example.Economic Geography,2012,32(9):1-7.]
[21]毛广雄.行政区划调整对区域发展的影响初探:以江苏省淮安市为例.农村经济,2005,(9):57-60.[Mao Guangxiong.The preliminary research of the influence of administrative division adjustment on regional development:Taking huai'an city of Jiangsu province as an example.Rural Economy,2005,(9):57-60.]
[22]张佰瑞.我国街乡镇行政区划调整问题研究:以北京顺义区为例.时代金融,2016,(9):54-55.[Zhang Bairui.Study on administrative division adjustment of China's street towns:Taking Beijing Shunyi district as an example.Times Finance,2016,(9):54-55.]
[23]杜曼.改革开放以来北京辖区(县)行政区划调整效果研究.北京:首都经济贸易大学,2015.[Du Man.Study on the effect of administrative division adjustment of Beijing district(county)since the reform and opening up.Beijing:Capital University of Economics and Business,2015.]
[24]肖萍,侯爱敏,孟凡霄,等.撤县(市)设区不同划界模式对城市空间演变的影响研究.规划师,2017,33(8):92-97.[Xiao Ping,Hou Aimin,Meng Fanxiao,et al.The Influence of different demarcation patterns of"Turning County Into District"on urban spatial evolution.Planners,2017,33(8):92-97.]
[25]冯艳君,李立勋.行政区划调整对土地利用空间特征演变的影响:以广州市南沙地区为例.热带地理,2013,33(1):40-47.[Feng Yanjun,Li Lixun.Impacts of administrative division adjustment on spatial characteristics of land utilization:A case study of Nansha district in Guangzhou.Tropical Geography,2013,33(1):40-47.]
[26]王国恩,张媛媛.城市增长边界的效能及对行政区划调整的影响.规划师,2012,28(3):21-27.[Wang Guoen,Zhang Yuanyuan.Urban growth boundary efficacy and its influence on administrative boundary adjustment.Planners,2012,28(3):21-27.]
[27]尚正永,卢晓旭,张小林,等.行政区划调整对城市地域结构演变的影响:以江苏省淮安市为例.经济地理,2015,35(8):61-67.[Shang Zhengyong,Lu Xiaoxu,Zhang Xiaolin,et al.The impacts of administrative district adjustment on the evolution of urban spatial structure:A case of Huai'an in Jiangsu province.Economic Geography,2015,35(8):61-67.]
[28]王建华.行政区划调整与城市空间的跨越发展.规划师,2003,19(5):77-79.[Wang Jianhua.Adjustment of administrative demarcation and the development of city space.Planners,2003,19(5):77-79.]
[29]马春笋,张可云.我国行政区划基本问题与走向探讨.中国行政管理,2009(3):41-43.[Ma Chunsun,Zhang Keyun.Study on the basic problems and reform of Chinese administration divisions.Chinese Public Administration,2009(3):41-43.]
[30]胡序威.区域与城市研究.北京:科学出版社,2008.[Hu Xuwei.Regional and Urban Studies.Beijing:Science Press,2008.]
[31]中共中央编译局.马克思恩格斯选集:第四卷.北京:人民出版社,1972.[Central Compilation and Translation Bureau.Selections of Marx and Engels:Volume 4.Beijing:People's Publishing House,1972.]
[32]21世纪经济报道.“砥砺奋进改革前行”系列述评之五:坚持协调发展,中国夯实全面小康基础.http://www.21jingji.com/2017/10-17/yNMDEzNzlfMTQxODQyNw.html,2019-01-03.[21ST Century Business Herald.Commentary on"Striving Forward Reform"series No.5:By adhering to coordinated development,China has consolidated the foundation of a well-off society in an all-round way.http://www.21jingji.com/2017/10-17/yNMDEzNzlfMTQxODQyNw.html,2019-01-03.]
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[36]林拓,申立.行政区划优化:与国家治理同行.经济社会体制比较,2016,(4):77-86.[Lin Tuo,Shen Li.Administrative division optimization:Together with national governance.Comparative Economic and Social Systems,2016,(4):77-86.]
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[38]王开泳,戚伟,邓羽.2000年以来中国城市空间扩张的时空平稳性.地理研究,2014,33(7):1195-1206.[Wang Kaiyong,Qi Wei,Deng Yu.The research on urban spatial expansion and its space-time stability in China since 2000.Geographical Research,2014,33(7):1195-1206.]
[2]罗震东.改革开放以来中国城市行政区划变更特征及趋势.城市问题,2008(6):77-82.[Luo Zhendong.The characteristics and trends of China's urban administrative division since the reform and opening up.Urban Problems,2008(6):77-82.]
[3]王开泳,陈田.国外行政区划调整的经验及对我国的启示.世界地理研究,2011,20(2):57-64.[Wang Kaiyong,Chen Tian.The experience reference of administrative division adjustment in abroad and the apocalypses for China.World Regional Studies,2011,20(2):57-64.]
[4]侯景新,浦善新,肖金成.行政区划与区域管理.北京:中国人民大学出版社,2006.[Hou Jingxin,Pu Shanxin,Xiao Jincheng.Administrative Division and Regional Management.Beijing:China Renmin University Press,2006.]
[5]靳尔刚,张文范.行政区划与地名管理.北京:中国社会出版社,1996.[Jin Ergang,Zhang Wenfan.Administrative Division and Management of Place Names.Beijing:China Social Press,1996.]
[6]刘君徳,周克瑜.中国行政区划的理论与实践.上海:华东师范大学出版社,1996.[Liu Junde,Zhou Keyu.Theory and Practice of Chinese Administrative Divisions.Shanghai:East China Normal University Press,1996.]
[7]Fielding A J.Migration and urbanization in Western Europe since 1950.The Geographical Journal,1989,155(1):60-69.
[8]Clark G L,Feldman M P,Gertler M S,et al.The Oxford Handbook of Economic Geography.Oxford:Oxford University Press,2000.
[9]Redding S,Sturm D.The costs of remoteness:evidence from the German division and re-unification.American Economic Review,2008,98(5):1766-1797.
[10]Spolaore E,Alesina A,Wacziarg R.Economic Integration and Political Disintegration.The American Economic Review,2000,90(12):176-197.
[11]王开泳,陈田.行政区划研究的地理学支撑与展望.地理学报,2018,73(4):688-700.[Wang Kaiyong,Chen Tian.Geographical prospects of spatial governance through a review on administrative divisions.Acta Geographica Sinica,2018,73(4):688-700.]
[12]汪宇明.中国市管县(市)体制的区域结构关系及发展趋势.经济地理,2000,20(3):18-21.[Wang Yuming.The regional structure relationship and development trend of the city pipe county(city)system in China.Economic Geography,2000,20(3):18-21.]
[13]刘君德.理性认识和推进“强县扩权”.安徽决策咨询,2004,(7):10-12.[Liu Junde.Conceptual knowledge and push on"County Authority".Decision-Making,2004,(7):10-12.]
[14]范今朝.1979年以来浙江省行政区划调整变更的过程及作用:兼论中国未来行政区划改革走向.经济地理,2004,24(4):449-453.[Fan Jinzhao.A preliminary study on the stage and effect of the adjustment of the division of administrative areas of Zhejiang province in China since 1979.Economic Geography,2004,24(4):449-453.]
[15]魏衡,魏清泉,曹天艳,等.城市化进程中行政区划调整的类型、问题与发展.人文地理,2009,24(6):55-58.[Wei Heng,Wei Qingquan,Cao Tianyan,et al.Types,problems and changes for readjustment of administrative divisions in the process of urbanization.Human Geography,2009,24(6):55-58.]
[16]张莉,李伟.1997年以来我国城市行政区划调整的特征与影响.见:海口市规划局.2014中国城市规划年会论文集.海口:海口市规划局,2014:1-11.[Zhang Li,Li Wei.The characteristics and influence of urban administrative division adjustment since 1997.In:Haikou City Planning Bureau.The Proceedings of 2014 National Planning Conference 2014.Haikou:Haikou City Planning Bureau,2014:1-11.]
[17]刘君德,舒庆.论行政区划、行政管理体制与区域经济发展战略.经济地理,1993,13(1):15-17.[Liu Junde,Shu Qing.On administrative division,administrative management system and regional economic development strategy.Economic Geography,1993,13(1):15-17.]
[18]李郇,徐现祥.中国撤县(市)设区对城市经济增长的影响分析.地理学报,2015,70(8):1202-1214.[Li Xun,Xu Xianxiang.Impact analysis of turning counties(cities)into districts to the urban economic growth in China.Acta Geographica Sinica,2015,70(8):1202-1214.]
[19]陈钊.地级行政区划调整对区域经济发展的影响:以四川省为例.经济地理,2006,26(3):418-421.[Chen Zhao.On the regional economic effects about adjustment of administrative regions at prefecture level:A case study of Sichuan province.Economic Geography,2006,26(3):418-421.]
[20]崔凤军,陈晓.“省管县”体制对不同等级行政区域经济发展的影响研究:以浙江省为例.经济地理,2012,32(9):1-7.[Cui Fengjun,Chen Xiao.Regional economic development under the"Province Governing County"system:Taking Zhejiang province as an example.Economic Geography,2012,32(9):1-7.]
[21]毛广雄.行政区划调整对区域发展的影响初探:以江苏省淮安市为例.农村经济,2005,(9):57-60.[Mao Guangxiong.The preliminary research of the influence of administrative division adjustment on regional development:Taking huai'an city of Jiangsu province as an example.Rural Economy,2005,(9):57-60.]
[22]张佰瑞.我国街乡镇行政区划调整问题研究:以北京顺义区为例.时代金融,2016,(9):54-55.[Zhang Bairui.Study on administrative division adjustment of China's street towns:Taking Beijing Shunyi district as an example.Times Finance,2016,(9):54-55.]
[23]杜曼.改革开放以来北京辖区(县)行政区划调整效果研究.北京:首都经济贸易大学,2015.[Du Man.Study on the effect of administrative division adjustment of Beijing district(county)since the reform and opening up.Beijing:Capital University of Economics and Business,2015.]
[24]肖萍,侯爱敏,孟凡霄,等.撤县(市)设区不同划界模式对城市空间演变的影响研究.规划师,2017,33(8):92-97.[Xiao Ping,Hou Aimin,Meng Fanxiao,et al.The Influence of different demarcation patterns of"Turning County Into District"on urban spatial evolution.Planners,2017,33(8):92-97.]
[25]冯艳君,李立勋.行政区划调整对土地利用空间特征演变的影响:以广州市南沙地区为例.热带地理,2013,33(1):40-47.[Feng Yanjun,Li Lixun.Impacts of administrative division adjustment on spatial characteristics of land utilization:A case study of Nansha district in Guangzhou.Tropical Geography,2013,33(1):40-47.]
[26]王国恩,张媛媛.城市增长边界的效能及对行政区划调整的影响.规划师,2012,28(3):21-27.[Wang Guoen,Zhang Yuanyuan.Urban growth boundary efficacy and its influence on administrative boundary adjustment.Planners,2012,28(3):21-27.]
[27]尚正永,卢晓旭,张小林,等.行政区划调整对城市地域结构演变的影响:以江苏省淮安市为例.经济地理,2015,35(8):61-67.[Shang Zhengyong,Lu Xiaoxu,Zhang Xiaolin,et al.The impacts of administrative district adjustment on the evolution of urban spatial structure:A case of Huai'an in Jiangsu province.Economic Geography,2015,35(8):61-67.]
[28]王建华.行政区划调整与城市空间的跨越发展.规划师,2003,19(5):77-79.[Wang Jianhua.Adjustment of administrative demarcation and the development of city space.Planners,2003,19(5):77-79.]
[29]马春笋,张可云.我国行政区划基本问题与走向探讨.中国行政管理,2009(3):41-43.[Ma Chunsun,Zhang Keyun.Study on the basic problems and reform of Chinese administration divisions.Chinese Public Administration,2009(3):41-43.]
[30]胡序威.区域与城市研究.北京:科学出版社,2008.[Hu Xuwei.Regional and Urban Studies.Beijing:Science Press,2008.]
[31]中共中央编译局.马克思恩格斯选集:第四卷.北京:人民出版社,1972.[Central Compilation and Translation Bureau.Selections of Marx and Engels:Volume 4.Beijing:People's Publishing House,1972.]
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