国家级新区的治理尺度建构及其经济效应评价

doi:10.11821/dlyj020190058

摘要/Abstract

摘要：

国家级新区作为中国战略空间的核心内容,其设立与发展过程中的治理尺度建构至关重要。论文从尺度重构视角建立了分析框架,以此来考察国家级新区治理尺度建构的实践,并采用回归模型实证检验了不同治理类型的经济效应。研究认为,国家级新区治理尺度建构是各级行政主体通过刚性或柔性的手段在新区的定位、区划和权力配置等方面进行变革的作用过程。在具体实践中,不同国家级新区所建构的治理尺度在地域空间组织、行政主体构成和权力分配等方面具有显著差异,形成了多样化的治理类型。其中,“市辖区+合署办公”和“市辖区+管委会”等治理类型具有较高的经济效应,有助于解决权力边界模糊和治理主体多元等问题,而“市辖县+管委会”和“跨地市+管委会”等治理类型则表现出较低的经济效应。对于跨地级市或包含市辖县的国家级新区,需要适时推进“撤县设区”来简化治理主体或通过上级政府的“强势权力介入”来统一地域发展逻辑。

关键词: 国家级新区, 尺度, 尺度重构, 治理, 经济效应

Abstract:

National-level new area is a large-scale comprehensive urban functional district designated by the central government based on the relevant administrative divisions and functional zones. The purpose is to carry out state developmental and reform activities. As the core content of Chinese strategic space, governance rescaling is the crucial thing in the process of establishment and development of national-level new areas. This paper builds an analytical framework from the perspective of scale rescaling to examine the practice of governance rescaling in national-level new areas. It adopts panel data of 215 counties of 16 national-level new areas involved between 2009 and 2017 and the regression model to test the economic effects of different types of governance. This paper concluded that governance rescaling of national-level new areas is the process of the function of all-level administrative subjects in the functional orientation, spatial zoning, administrative system and power allocation through rigid or flexible means. In practice, there are significant governance scale differences in regional spatial organization, administrative subject composition and power distribution among various national-level new areas, which form diversified governance types. Among them, the types of governance such as "Municipal District+Co-operative Work" and "Municipal District+Management Committee" have better economic effects, which can help to settle the problems of fuzzy power boundary and diversity of governance subjects. Whereas, the types of governance, such as "Municipal County+Management Committee" and "Cross-land City+Management Committee", show lower economic effects. The more complex the administrative relationship in the national-level new area spatial division and management is, the less they contribute to local economic growth. When a national-level new area spatial division crosses the border of prefecture-level cities or includes counties, management faces additional challenges. For national-level new areas which cross prefecture-level cities or contain municipal counties, it is necessary to promote the "removing counties and districts" in due course to simplify the main body of governance or to unify the logic of local development through the "strong power intervention" of superior governments. The Chinese case is theoretically significant because it suggests that the various trajectories and effects of state rescaling in different regions are contingent upon local social, economic, and political conditions.

Key words: national-level new area, scale, scale rescaling, governance, economic effects

晁恒, 李贵才. 国家级新区的治理尺度建构及其经济效应评价[J]. 地理研究, 2020, 39(3): 495-507.

CHAO Heng, LI Guicai. Governance rescaling of national-level new areas and evaluation of their economic effects[J]. GEOGRAPHICAL RESEARCH, 2020, 39(3): 495-507.

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模式	类型	空间区划重构模式	行政主体关系复杂程度	经济职能与社会职能是否统一	预期管治效率	特点	示例
属地政府模式	“新区政府”型	市区型	⊙	是	高	法律主体明确,机构健全;管理幅度大,成本高	浦东新区滨海新区
属地政府模式	“合署办公”型	市区型或市县型	⊙⊙	是	较高	兼具行政区体制优势和行政效能;管委会的统筹与协调较弱	舟山群岛新区南沙新区西海岸新区金普新区
管委会模式	“管委会 Ⅰ”型	市区型	⊙⊙⊙	否	较高	机构设置灵活,开发建设效率高;不具有行政主体资格,社会事务管理不足	两江新区江北新区哈尔滨新区长春新区
	“管委会 Ⅱ”型	市县型	⊙⊙⊙	否	中等	机构设置灵活; 难以协调县级行政主体	兰州新区湘江新区福州新区滇中新区
	“管委会 Ⅲ”型	市地型	⊙⊙⊙⊙	否	较低	上级政府积极干预,机构设置灵活;难以统筹地方合作,甚至存在竞争关系	西咸新区贵安新区天府新区赣江新区

治理类型	国家级新区成立时间（年-月）	涉及城市	涉及区/县数量
“市辖区+合署办公”	南沙新区（2012-9）、西海岸新区（2014-6）、金普新区（2014-6）	广州、青岛、大连	31
“市辖区+管委会”	两江新区（2010-5）、江北新区（2015-6）、哈尔滨新区（2015-12）、长春新区（2016-2）	重庆、南京、哈尔滨、长春	48
“市辖县+管委会”	舟山群岛新区（2011-6）、兰州新区（2012-8）、湘江新区（2015-4）、福州新区（2015-8）、滇中新区（2015-9）	舟山、兰州、长沙、昆明	47
“跨地市+管委会”	西咸新区（2014-1）、贵安新区（2014-1）、天府新区（2014-10）、赣江新区（2016-6）	西安、咸阳、贵阳、安顺、成都、眉山、南昌、九江	89

变量	市辖区+合署办公		市辖区+管委会		市辖县+管委会		跨地市+管委会
变量	系数	T值	系数	T值	系数	T值	系数	T值
NLNA	0.175***	5.52	0.157***	4.16	0.083**	2.82	0.067***	4.33
taxrate	-0.009***	-4.07	-0.012**	-3.12	-0.021***	-6.86	-0.016**	-3.04
lnpopu	0.281***	6.05	0.312***	3.77	0.233***	3.45	0.191***	4.40
density	0.087e-04	2.32	4.812e-04**	3.01	0.112e-04	0.46	0.076e-04	1.37
lngdplg	0.340***	9.91	0.414***	18.16	0.621***	20.87	0.532***	19.82
lnexpe	0.192***	8.73	0.183***	7.03	0.142***	6.28	0.108***	7.22
lninve	0.176***	4.84	0.105***	4.12	0.045**	3.22	0.147***	11.12
secind	-7.830e-04	-0.30	-0.003	-1.07	-0.002	-2.03	-0.005*	2.64
thdind	3.260e-04	2.48	0.002	1.26	0.008***	7.38	5.253e-04	0.27
_cons	-0.439	-1.79	-0.959	-2.16	0.071	0.21	-0.431**	-2.97
R²	0.951		0.923		0.972		0.969
N	279		432		423		801

变量	市辖区+合署办公		市辖区+管委会		市辖县+管委会		跨地市+管委会
变量	系数	T值	系数	T值	系数	T值	系数	T值
NLNA	0.392***	3.41	0.416**	3.17	0.165**	2.12	0.153	1.28
taxrate	-0.047	-1.76	-0.008	-0.81	-0.105**	-2.34	-0.023	-1.10
lnpopu	0.135***	3.61	0.211***	3.58	0.408**	3.12	0.113*	2.79
density	-0.535e-04	-0.78	-0.106e-04	-0.63	-1.102e-04	-0.30	0.042e-04	0.07
lngdplg	0.256**	2.46	0.279***	3.52	0.129**	2.95	0.144*	2.49
lnexpe	0.152	0.47	0.059	0.48	0.174	0.51	0.505**	3.73
lninve	0.551***	6.24	0.349***	4.05	0.428***	3.56	0.359***	3.58
secind	0.822e-04	0.03	0.001	0.31	-0.037**	-2.37	0.002	0.12
thdind	0.003	0.02	-0.008	-0.74	-0.023	-1.34	-0.018	-0.85
_cons	-6.971**	-2.63	-4.035**	-2.03	-5.372	-1.09	-1.478*	-1.61
R²	0.642		0.713		0.652		0.586
N	279		432		423		801