中国市县空间隶属关系的历史启示与改革优化

doi:10.11821/dlyj020180865

摘要/Abstract

摘要：

市管县体制确立以来,地级市成为了中国统县政区的主体。虽然统县政区与辖县的行政隶属关系明确,但现今存在的市县同城而治现象与少数民族自治州城市的管理模式,使一些市县的空间隶属关系不甚明晰,这很大程度上源于中国历史上长期存在的附郭县制度。中国传统的行政区划体系中,统县政区与辖县的空间隶属关系一直比较模糊,二者主要依靠附郭县建立起长效的空间联系。清末以后,附郭县被大量裁撤,随着城市型政区和市辖区兴起,传统的由附郭县管理城市的“城乡合治”模式走向“城乡分治”。20世纪,统县政区与辖县的空间隶属关系逐渐完成了历史演替,走向界线化、明确化的方向。新时期的行政区划改革,尤其是市县空间隶属关系的优化,应充分考量中国发展实际,重视中国政区发展的历史积淀过程。

关键词: 附郭县, 空间隶属关系, 市县同城, 自治州, 改革

Abstract:

Since the establishment of the county under the prefecture-level city system, the prefecture-level city of China has become the main body of the administrative division that governs the county. Although the administrative subordination relationship between the administrative divisions that govern county and the county is clear, the existing city and county in the same place and the management mode of the city of the minority autonomous prefecture. The pattern makes the spatial subordination of some cities and counties unclear, which largely stems from the long-standing attached county system in China's history. In the traditional administrative division system of China, the spatial subordination relationship between the prefecture-level city and the county under city has been relatively vague, and the two mainly rely on the establishment of a long-acting spatial connection in the attached county. After the end of the Qing Dynasty, the attached counties were canceled in large quantities. Along with the rise of urban districts and municipal districts, the traditional model of management city by the attached county which is "administrating of city-countryside unitedly" moved to "administrating of city-countryside separately". In the 20th century, the spatial subordination relationship between the prefecture-level city and the county under city gradually completed the historical succession and went towards the direction of boundary and clarification. The administrative division reform in the new era, especially the optimization of the spatial relationship between cities and counties, should fully consider the actual development of China and attach importance to the historical accumulation process of the development of administrative division in China.

Key words: the attached county, the spatial subordination relationship, city and county in the same place, autonomous prefecture, reform

赵逸才. 中国市县空间隶属关系的历史启示与改革优化[J]. 地理研究, 2019, 38(8): 2058-2067.

ZHAO Yicai. Historical reference and optimization reform of the spatial subordination relationship of city and county in China[J]. GEOGRAPHICAL RESEARCH, 2019, 38(8): 2058-2067.

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	秦	西汉	东汉	西晋	隋	唐	辽、北宋	金、南宋	元	明	清
单附郭县（个）	37	103	105	172	186	303	389	349	265	126	160
多附郭县（组）	0	0	0	0	4	13	20	18	16	15	20
总量（个）	37	103	105	172	194	329	429	385	297	156	201

高层政区	统县政区	县级政区	性质
青海省	海南藏族自治州（政府驻地：共和县恰卜恰镇）	共和县	附郭县
	黄南藏族自治州（政府驻地：同仁县隆务镇）	同仁县
	果洛藏族自治州（政府驻地：玛沁县大武镇）	玛沁县
河北省	邢台市（政府驻地：桥东区红星街）	邢台县（政府驻地：邢台市桥东区）	寄治县
河北省	沧州市（政府驻地：运河区解放西路）	沧县（政府驻地：沧州市新华区）	寄治县
新疆维吾尔自治区	和田地区（政府驻地：和田市塔乃依北路）	和田市（政府驻地：和田市奴尔巴格街道）	附郭政区
新疆维吾尔自治区	和田地区（政府驻地：和田市塔乃依北路）	和田县（政府驻地：和田市江南路）	寄治县

改革方式	搬迁县城	撤县改区
优	1.治所搬迁,有利于发挥县域的地方的自主性和积极性,方便本县的行政管理,权责明确,有利于提高行政效率 2.有利于新县城周边乡镇的开发和建设	1.有利于促进城乡一体化,促进“以城带乡”的实现 2.有利于缓解中心城市发展空间不足的压力,优化城市内部的空间结构 3.可精减机构和人员,提高行政效率
劣	1.选址外迁后,建设新县城的成本高,周期长,短时间内难以解决市县同城问题 2.若县域有限,新县城可能距离地级市过近,可能变成中心城市的卫星城 3.县级机关的工作人员和家属多年生活在老市区,县城搬迁会牵扯到其搬家、上学等具体问题	1.县的自主权比市辖区大,可能造成行政管理的自主性和积极性减弱 2.“撤县改区”在短期内难以解决农村地域较大的问题,农村地区的行政管理和统筹发展难度增大
适用范围	县域面积较大,区位条件较好,有一定产业基础和自身发展优势的县	中心城市有较大规模,县域规模又不大,对中心城市依赖性较强的县