县级市升格为地级市对城市群发展的影响——以关中平原东北部地区为例  

The Influence of the Upgrading of County-level City to Prefecture-level City on the Development of Urban Agglomerations:Taking the Northeastern Part of the Guanzhong Plain Urban Agglomeration as an Example

作　　者：赵彪 林拓[2] ZHAO Biao;LIN Tuo(Institute of Geographic Sciences and Natural Resources Research,Chinese Academy of Sciences,Beijing 100101,China;School of Urban&Regional Science,East China Normal University,Shanghai 200062,China)

机构地区：[1]中国科学院地理科学与资源研究所,北京100101 [2]华东师范大学城市与区域科学学院,上海200062

出　　处：《开发研究》2022年第1期108-117,共10页Research On Development

基　　金：国家社会科学基金重大项目“新型城镇化下我国行政区划设置优化及其评估研究”(15ZD032);国家自然科学基金项目“行政区划调整的区域效应与作用机理研究”(41471126)。

摘　　要：新时期区域竞争的焦点逐渐由资源禀赋竞争向创新能力竞争转变,而缺失一体化发展的“凝聚核”则是制约关中平原东北部地区制造业实现高质量发展的关键短板。在长期经济发展过程中,韩城已经成为关中平原东北部事实上的中心城市,但在“地市合并、市领导县”改革的过程中,将县级韩城市简单地划归地级渭南市下辖,导致韩城与其经济腹地开始出现分离且城市综合服务功能逐渐收缩,县级行政框架与社会经济发展和历史文化名城现状之间的矛盾也会日益凸显。同时,“市管县”背景下的体制不顺加剧了渭南市存在的“小马拉大车”问题,导致关中平原东北部的“增长极”缺失,由此产生的大面积连片贫困化现象进一步造成了黄河金三角地区的协同发展困境。在分析其问题表现、发展意义和关键症结的基础上,相应提出了“韩渭分治、等级提升、沿黄统筹”的改革思路,建议将县级市韩城的现有行政建制进一步升格,强化与周边县(市)协调联动,走差异互补的发展路径。In the new era, the focus of regional competition is gradually changing from resource endowment competition to innovation ability competition, and the lack of “cohesion core” of integrated development is the key weakness that restricts the realization of high-quality development of manufacturing industry in northeast Guanzhong Plain. In the course of long-term economic development, Hancheng City has become the de facto central city of the northeast Guanzhong Plain. However, in the process of administrative division adjustment, the county-level city Hancheng was simply placed under the jurisdiction of the prefecture-level city Weinan. Hancheng began to separate from its economic hinterland and the comprehensive service function of the city gradually impaired. The contradiction among the county-level administrative framework, its social and economic development and the status quo of the historical and cultural city became increasingly prominent. At the same time, with the background of “city governing county”, the unfavorable system exacerbated the problem of “a pony pulling a big cart” in Weinan City, resulting in the absence of “growth pole” in the northeast Guanzhong Plain. It led to a large-scale contiguous poverty phenomenon which further caused the collaborative development dilemma in the Golden Triangle Zone of the Yellow River. Based on the analysis of its problems, development significance and key sticking points, this paper puts forward corresponding reform ideas, “Hancheng-Weinan divided governance, grade promotion, overall planning along the Yellow River”, and suggests that the existing administrative system of county-level city Hancheng should be further upgraded, and the development path of coordination and complementarity with the surrounding counties and cities should be strengthened.

关 键 词：地级市 行政区划 市管县体制 增长极 黄河金三角地区 

分 类 号：C912[经济管理] F299.27[社会学]