河南省行政区划与区域经济发展研究
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摘要
本文将行政区划视为对区域经济发展有着重要影响的一种制度安排,以行政区划与区域经济相互作用,即区域经济发展引致行政区划进行相应调整,而行政区划制度和格局变迁又反作用于区域经济发展,为理论分析主线,从市管县体制、县级市设立、市辖区设立与调整等3个方面,重点研究了在计划经济体制向市场经济体制转轨和快速工业化、城市化进程中,河南省县级以上行政区划改革和调整与区域经济发展的关系。全文除导言和结论外,共分五大部分。首先,简要分析了河南省行政区划与区域经济发展的现状,以获得对河南省行政区划、区域经济发展及二者关系的基本认识。在此基础上,运用定性和定量分析的方法,分别研究了市管县体制、县级市设立、市辖区设立与调整的模式和演变过程,行政区划改革与调整的区域经济发展效应,以及行政区划改革与调整存在的突出问题。基于这些分析,提出了优化河南省行政区划与区域经济发展关系的构想。归纳这些方面的研究,本文得到了以下结论和理论上的认识。
市管县体制是特殊历史背景下的产物。河南省市管县体制经历以服务大中城市发展为取向和以城市带动农村发展为取向两个阶段,采取了由原地级市直接管辖由邻近地区划入的县(市)、将县级市升格为地级市、将县直接升格为地级市、地市合并等4种市管县体制的模式。在计划经济时期和计划经济体制向市场经济体制转轨的初期,市管县体制对河南省中心城市的发展产生了重大而深远的影响。实行市管县体制,通过运用行政手段,把周边的县纳入到中心城市的范畴,形成了以行政区划和行政管理为基础的特殊的刚性城市-区域系统,城市产业发展由此获得一定的规模经济,有效地促进了地级市作为中心城市的职能发育。同时,市管县体制在一定程度上对县域经济的发展也产生了积极的影响。在地级市的行政区域内,原来的城市与县之间的行政壁垒被打破,城市和农村之间贸易条件得到改善,市场在城乡之间的要素流动、资源配置中发挥作用的空间增大,有利于县域经济在与城市之间的分工中发挥比较优势。
河南省的县级市设立采用了切块设市和整县设市两种模式。1978年以来,以整县设市模式为主导。通过县级市设立对市域经济发展影响效应的定量分析,可以发现,撤县设市对本地经济的发展产生了重大影响。撤县设市实现了区域经济发展的性质由以农村经济、农业经济为主导向以城市经济、非农产业为主导的转变,诱导市域经济功能、管理体制、发展战略发生重大调整;有效促进了市域经济的增长,且这种影响表现出时段变化特征和地域差异;推进了市域城市化进程。
县级市的设立对河南全省的经济空间格局也产生了不可忽视的影响。而且,这种影响是长时效的。首先,县级市的加快设立对改善河南省城镇体系结构起到了积极作用,并导致城市空间分布的局部集中。其次,撤县设市打破原有市县分置、城乡分割格局,实行城乡合治模式,为城乡统筹发展提供了有利的行政区划基础。河南省的市辖区设立与调整采取了4种模式,即,撤销郊区、实行区辖乡镇管理体制,撤县(市)设区,从一个或几个县(市)析置部分行政区域、增设市辖区,调整市辖区和周边县(市)的部分行政区域。实践证明,设立和调整市辖区是培育和壮大中心城市的制度性选择,也是解决城市发展问题的有效方式之一。首先,市辖区的设立和调整对中心城市产生了明显的成长空间扩张效应和城市功能区优化效应,对城市公共服务设施和基础设施的共建共享,对城市的统一规划、建设和管理等产生了积极的影响。其次,市辖区的设立和调整,通过实现中心城区和周边农村区域行政管理与组织的一体化、空间的一体化,经济的一体化,在一定时期内较好地解决了城乡分割、城乡二元结构问题,促进了各市辖区自身经济的快速发展。
然而,由于历史原因、制度设计的缺陷和市场经济体制的逐步建立,从区域经济发展的视角看,河南省市管县体制、县级市设置、市辖区设立和调整存在着一些亟待解决的问题。目前,市管县体制已经成为阻碍区域经济发展的制度性因素。县级市数量偏少、空间布局不尽合理。市辖区设立和调整将大片农村区域划入城区,造成了城乡管理上新的矛盾,带来一定程度的虚假城市化,引起城市空间粗放式扩张,对于划入的偏远农业地区,城乡融合效果并不理想。
针对河南省行政区划存在的问题,从适应区域经济发展对行政区划调整的内在要求,促进区域经济发展出发,本文提出了近期河南省行政区划设置和调整的设想。即,在保持行政区划相对稳定的情况下,区分类别,逐步推行省直管县体制;积极稳妥地设立县级市;继续增设和调整市辖区,适度扩大中心城市规模,加快中原城市群建设,培育和壮大区域性中心城市。
关于行政区划与区域经济发展的关系,本文认为,改革开放以来,河南省行政区划改革和调整呈现出2个转向,即区域经济转向和城市型政区转向。亦即,促进区域经济发展、加快城市化进程、发展中心城市及发挥其在区域经济中的组织功能成为行政区划改革和调整的重要驱动力。在现有经济体制和政治体制下,行政区划与区域经济发展存在循环互动和动态协调关系。真正实现行政区划与区域经济发展的协调,必须转变政府职能,深化经济体制和政治体制改革,充分发挥市场机制的作用,从根本上解除行政区划对区域经济发展的制约。
This dissertation views administration regionalization as an institutive arrangement which exerts great influence on the regional economy. With the interaction between administrative regionalization and regional economy, namely regional economy brings about relative adjustment of administrative regionalization, and the system and format change conversely affect regional economy as the theoretical line, from the perspectives of municipal governing county system, the establishment of county cities and the establishment of municipal regions, this paper studies the relationship between the reform of administrative regionalization above the level of the counties and regional economy in Henan Province in its evolution from planned economy system to market economy, the intensified industratilization and municipization. This study consists of five parts between an introduction and a conclusion. It first analyzes the contemporary situation of the administration regionalization and the development of the regional economy of Henan Province so as to obtain a basic knowledge of the administrative regionalization and the development of the regional economy and the relationship between them. Based on such a knowledge, applying the quantitative and qualitative method, this dissertation respectively studies the adjustment and reform format of municipal governing county system, the establishment of county cities and the establishment of municipal regions, the economic effects of the reform of the administrative regionalization and the development of the regional economy, and the salient problems existing in the reform and adjustment of the administrative regionalization, and offers suggestion on the improvement of the relationship between the administrative regionalization and the development of the regional economy and raises the following conclusion and theoretical understanding.
The municipal governing countysystem is the unique product of the special historical background. This system has undergone two stages of serving the development of the big and middle cities and the leading of the development of the countryside and applies four modes of the previous regional city governing the adjacent counties and cities, the promotion of county cities to regional cities, the promotion of counties directly to regional cities and the merging of regional cities and cities. At the beginning of the transition from the planned economy to the market economy the municipal governing county system has played an important and profound role in the development of the central cities of Henan Province. Exercising the municipal governing county system, through the administrative methods, the nearby counties are taken into the domain of the central cities, thus a special stable city-regional system based on the administrative regionalization and administrative government is formed and a the city is able to develop on a large scale, effectively advancing the functional development of the role of the regional city as the central city. Meanwhile, the municipal governing county system also has active influence on the development of the counties in a certain degree. Within the administrative region of the regional city, the administrative barrier between the city and the conty is broken, the trade situation between city and the countryside is improved, the market flows between the city and the countryside, the space of the resources allotment is enlarged, all of which are advantageous for the county economy over the city economy.
There exist two modes of the establishment of county as the city: the dividing as establishment and the whole county as establishment. Since 1978, the major way is the latter mode. Through the quantitative analysis of the effect of the establishment of the county cities on development of the city’s economy we find that the establishment of the county cities has had great influence on the development of the economy. The establishment of the county cities has realized in the regions the transition from country economy and farm economy to city economy and non-country economy and has guided the significant adjustment of the economic function of the city, the administrative system and the development strategy, these influences show different characters at different stages and regional distinctions and promoted the progress of the municipalization. At the same time, such influences have long term effects. First, the rapid establishment of the county cities has had active influence on the structure of the cities and towns of Henan province and has led to the partial focalization of the distribution of city space. Secondly, the establishment of county cities has broken the previous distribution of cities and counties, the division of city and countryside and has taken on the mode of the merging of the city and the county and has provided advantageous foundation of administrative regionalization of the development of the city and the country.
The establishment and adjustment of the regions of the city of Henan Province has taken four modes: the revoking the suburbs, the establishment of the region governing town system, replacing the county (city) as region, the appointment of some administrative regions from one several counties (cities), adding city regions, the adjustment of the city regions and some regions of the adjacent counties (cities). Such practices show that the establishment and adjustment of the regions of the city is not only the institutive choice of the bringing up and enlargement of the central cities but also an effective way to solve the problem of the development of the cities. First, the establishment and adjustment of the regions of the city has had obvious enlarging space and the advantageous function of the city, it exerts active influences on the mutual establishment and enjoyment of the public service system and the foundation system, on the unifying planning, construction and administration. Secondly, through the unification of the administration and organization of the city and the adjacent countryside, the unification of the space and economy, the establishment and adjustment of the regions of the city preferably solves the division of the city and the country and the dichotomy of the structure of the city and the country and promotes the rapid development of each municipal regions.
However, because of historical reasons, the defects in the plan of the system and the progressive establishment of the market economy, from the perspective of the development of the regional economy, there still exist some urgent problems in the establishment and reform of the system of the municipal governing county system, the establishment of county cities and the establishment of municipal regions. At present, the municipal governing county system has become an institutive factor hindering the development of the regional economy. The number of the county cities is small and the space distribution of which is not very reasonable. The establishment and adjustment of city regions has included large country regions into the domain of the city and has caused problem in the administration of the city and the country, causing the fake municipalization and the extensive enlargement of the city space. For those remote farm areas included in the city, the effect of the merging of the city and the county is not good enough.
Starting from the problems in the administrative regionalization of Henan Province, from the inner demand of the development of the regional economy and the adjustment of the administrative regionalization, this dissertation has raised the recent assumption of the establishment and reform of the administrative regionalization of Henan Province: on the condition of continuing the relatively stable administrative regionalization, progressively begin the provincial governing county system with different categories; actively and stably establish county cities; continuingly increase and adjust city regions, reasonably enlarge the scale of the central cities, increase the construction of the city block of the Zhongyuan area and enhance the regional central cities.
As for the relationship between the administrative regionalization and regional economy, this dissertation holds that there show two turning points in the establishment and adjustment of the administrative regionalization of Henan Province since the reform and opening policy: the turning of regional economy and the turning of city administrative regions. In other words,the development of the regional economy, the enhancement of the municipalization, the development of the central cities and its effect in the organizational function in the development of the regional economy have become important drives in the establishment and adjustment of the administrative regionalization. Under the contemporary economic and political system, the relationship between administrative regionalization and the development of the regional economy is cycle active and dynamic. To achieve the balance between the administrative regionalization and the development of the regional economy, the government function must be transformed, the reform of the economic and political system must be deepened, the function of the market must be fully realized, the restraining of the administrative regionalization on the development of the regional economy must also be canceled.
市管县体制是特殊历史背景下的产物。河南省市管县体制经历以服务大中城市发展为取向和以城市带动农村发展为取向两个阶段,采取了由原地级市直接管辖由邻近地区划入的县(市)、将县级市升格为地级市、将县直接升格为地级市、地市合并等4种市管县体制的模式。在计划经济时期和计划经济体制向市场经济体制转轨的初期,市管县体制对河南省中心城市的发展产生了重大而深远的影响。实行市管县体制,通过运用行政手段,把周边的县纳入到中心城市的范畴,形成了以行政区划和行政管理为基础的特殊的刚性城市-区域系统,城市产业发展由此获得一定的规模经济,有效地促进了地级市作为中心城市的职能发育。同时,市管县体制在一定程度上对县域经济的发展也产生了积极的影响。在地级市的行政区域内,原来的城市与县之间的行政壁垒被打破,城市和农村之间贸易条件得到改善,市场在城乡之间的要素流动、资源配置中发挥作用的空间增大,有利于县域经济在与城市之间的分工中发挥比较优势。
河南省的县级市设立采用了切块设市和整县设市两种模式。1978年以来,以整县设市模式为主导。通过县级市设立对市域经济发展影响效应的定量分析,可以发现,撤县设市对本地经济的发展产生了重大影响。撤县设市实现了区域经济发展的性质由以农村经济、农业经济为主导向以城市经济、非农产业为主导的转变,诱导市域经济功能、管理体制、发展战略发生重大调整;有效促进了市域经济的增长,且这种影响表现出时段变化特征和地域差异;推进了市域城市化进程。
县级市的设立对河南全省的经济空间格局也产生了不可忽视的影响。而且,这种影响是长时效的。首先,县级市的加快设立对改善河南省城镇体系结构起到了积极作用,并导致城市空间分布的局部集中。其次,撤县设市打破原有市县分置、城乡分割格局,实行城乡合治模式,为城乡统筹发展提供了有利的行政区划基础。河南省的市辖区设立与调整采取了4种模式,即,撤销郊区、实行区辖乡镇管理体制,撤县(市)设区,从一个或几个县(市)析置部分行政区域、增设市辖区,调整市辖区和周边县(市)的部分行政区域。实践证明,设立和调整市辖区是培育和壮大中心城市的制度性选择,也是解决城市发展问题的有效方式之一。首先,市辖区的设立和调整对中心城市产生了明显的成长空间扩张效应和城市功能区优化效应,对城市公共服务设施和基础设施的共建共享,对城市的统一规划、建设和管理等产生了积极的影响。其次,市辖区的设立和调整,通过实现中心城区和周边农村区域行政管理与组织的一体化、空间的一体化,经济的一体化,在一定时期内较好地解决了城乡分割、城乡二元结构问题,促进了各市辖区自身经济的快速发展。
然而,由于历史原因、制度设计的缺陷和市场经济体制的逐步建立,从区域经济发展的视角看,河南省市管县体制、县级市设置、市辖区设立和调整存在着一些亟待解决的问题。目前,市管县体制已经成为阻碍区域经济发展的制度性因素。县级市数量偏少、空间布局不尽合理。市辖区设立和调整将大片农村区域划入城区,造成了城乡管理上新的矛盾,带来一定程度的虚假城市化,引起城市空间粗放式扩张,对于划入的偏远农业地区,城乡融合效果并不理想。
针对河南省行政区划存在的问题,从适应区域经济发展对行政区划调整的内在要求,促进区域经济发展出发,本文提出了近期河南省行政区划设置和调整的设想。即,在保持行政区划相对稳定的情况下,区分类别,逐步推行省直管县体制;积极稳妥地设立县级市;继续增设和调整市辖区,适度扩大中心城市规模,加快中原城市群建设,培育和壮大区域性中心城市。
关于行政区划与区域经济发展的关系,本文认为,改革开放以来,河南省行政区划改革和调整呈现出2个转向,即区域经济转向和城市型政区转向。亦即,促进区域经济发展、加快城市化进程、发展中心城市及发挥其在区域经济中的组织功能成为行政区划改革和调整的重要驱动力。在现有经济体制和政治体制下,行政区划与区域经济发展存在循环互动和动态协调关系。真正实现行政区划与区域经济发展的协调,必须转变政府职能,深化经济体制和政治体制改革,充分发挥市场机制的作用,从根本上解除行政区划对区域经济发展的制约。
This dissertation views administration regionalization as an institutive arrangement which exerts great influence on the regional economy. With the interaction between administrative regionalization and regional economy, namely regional economy brings about relative adjustment of administrative regionalization, and the system and format change conversely affect regional economy as the theoretical line, from the perspectives of municipal governing county system, the establishment of county cities and the establishment of municipal regions, this paper studies the relationship between the reform of administrative regionalization above the level of the counties and regional economy in Henan Province in its evolution from planned economy system to market economy, the intensified industratilization and municipization. This study consists of five parts between an introduction and a conclusion. It first analyzes the contemporary situation of the administration regionalization and the development of the regional economy of Henan Province so as to obtain a basic knowledge of the administrative regionalization and the development of the regional economy and the relationship between them. Based on such a knowledge, applying the quantitative and qualitative method, this dissertation respectively studies the adjustment and reform format of municipal governing county system, the establishment of county cities and the establishment of municipal regions, the economic effects of the reform of the administrative regionalization and the development of the regional economy, and the salient problems existing in the reform and adjustment of the administrative regionalization, and offers suggestion on the improvement of the relationship between the administrative regionalization and the development of the regional economy and raises the following conclusion and theoretical understanding.
The municipal governing countysystem is the unique product of the special historical background. This system has undergone two stages of serving the development of the big and middle cities and the leading of the development of the countryside and applies four modes of the previous regional city governing the adjacent counties and cities, the promotion of county cities to regional cities, the promotion of counties directly to regional cities and the merging of regional cities and cities. At the beginning of the transition from the planned economy to the market economy the municipal governing county system has played an important and profound role in the development of the central cities of Henan Province. Exercising the municipal governing county system, through the administrative methods, the nearby counties are taken into the domain of the central cities, thus a special stable city-regional system based on the administrative regionalization and administrative government is formed and a the city is able to develop on a large scale, effectively advancing the functional development of the role of the regional city as the central city. Meanwhile, the municipal governing county system also has active influence on the development of the counties in a certain degree. Within the administrative region of the regional city, the administrative barrier between the city and the conty is broken, the trade situation between city and the countryside is improved, the market flows between the city and the countryside, the space of the resources allotment is enlarged, all of which are advantageous for the county economy over the city economy.
There exist two modes of the establishment of county as the city: the dividing as establishment and the whole county as establishment. Since 1978, the major way is the latter mode. Through the quantitative analysis of the effect of the establishment of the county cities on development of the city’s economy we find that the establishment of the county cities has had great influence on the development of the economy. The establishment of the county cities has realized in the regions the transition from country economy and farm economy to city economy and non-country economy and has guided the significant adjustment of the economic function of the city, the administrative system and the development strategy, these influences show different characters at different stages and regional distinctions and promoted the progress of the municipalization. At the same time, such influences have long term effects. First, the rapid establishment of the county cities has had active influence on the structure of the cities and towns of Henan province and has led to the partial focalization of the distribution of city space. Secondly, the establishment of county cities has broken the previous distribution of cities and counties, the division of city and countryside and has taken on the mode of the merging of the city and the county and has provided advantageous foundation of administrative regionalization of the development of the city and the country.
The establishment and adjustment of the regions of the city of Henan Province has taken four modes: the revoking the suburbs, the establishment of the region governing town system, replacing the county (city) as region, the appointment of some administrative regions from one several counties (cities), adding city regions, the adjustment of the city regions and some regions of the adjacent counties (cities). Such practices show that the establishment and adjustment of the regions of the city is not only the institutive choice of the bringing up and enlargement of the central cities but also an effective way to solve the problem of the development of the cities. First, the establishment and adjustment of the regions of the city has had obvious enlarging space and the advantageous function of the city, it exerts active influences on the mutual establishment and enjoyment of the public service system and the foundation system, on the unifying planning, construction and administration. Secondly, through the unification of the administration and organization of the city and the adjacent countryside, the unification of the space and economy, the establishment and adjustment of the regions of the city preferably solves the division of the city and the country and the dichotomy of the structure of the city and the country and promotes the rapid development of each municipal regions.
However, because of historical reasons, the defects in the plan of the system and the progressive establishment of the market economy, from the perspective of the development of the regional economy, there still exist some urgent problems in the establishment and reform of the system of the municipal governing county system, the establishment of county cities and the establishment of municipal regions. At present, the municipal governing county system has become an institutive factor hindering the development of the regional economy. The number of the county cities is small and the space distribution of which is not very reasonable. The establishment and adjustment of city regions has included large country regions into the domain of the city and has caused problem in the administration of the city and the country, causing the fake municipalization and the extensive enlargement of the city space. For those remote farm areas included in the city, the effect of the merging of the city and the county is not good enough.
Starting from the problems in the administrative regionalization of Henan Province, from the inner demand of the development of the regional economy and the adjustment of the administrative regionalization, this dissertation has raised the recent assumption of the establishment and reform of the administrative regionalization of Henan Province: on the condition of continuing the relatively stable administrative regionalization, progressively begin the provincial governing county system with different categories; actively and stably establish county cities; continuingly increase and adjust city regions, reasonably enlarge the scale of the central cities, increase the construction of the city block of the Zhongyuan area and enhance the regional central cities.
As for the relationship between the administrative regionalization and regional economy, this dissertation holds that there show two turning points in the establishment and adjustment of the administrative regionalization of Henan Province since the reform and opening policy: the turning of regional economy and the turning of city administrative regions. In other words,the development of the regional economy, the enhancement of the municipalization, the development of the central cities and its effect in the organizational function in the development of the regional economy have become important drives in the establishment and adjustment of the administrative regionalization. Under the contemporary economic and political system, the relationship between administrative regionalization and the development of the regional economy is cycle active and dynamic. To achieve the balance between the administrative regionalization and the development of the regional economy, the government function must be transformed, the reform of the economic and political system must be deepened, the function of the market must be fully realized, the restraining of the administrative regionalization on the development of the regional economy must also be canceled.
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