撤县(市)设区对城市公共服务配置和空间布局的影响与作用机理
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摘要
撤县(市)设区作为中心城区拓展发展空间、优化整合资源的重要手段,对城市公共服务资源供需调配和空间重组带来的明显的影响。以杭州市为例,定量测度撤县(市)设区前后杭州公共服务水平时空变化特征以及公共服务设施的空间分布格局,并探讨这一区划调整影响城市公共服务供给和配置变化的作用机理。研究发现:撤县(市)设区对新设区的公共服务水平提升有一定的促进作用,但新老城区之间的公共服务差距仍然存在。公共服务设施建设具有滞后性,在城市规划的指导下现已由城市中心向外围等级扩散,且在新设区内已初步呈现集聚点。基于领域重构理论,城市规划修编、地方自主权变化及辖区功能转变等均会对城市公共服务资源供需产生影响,且这一机制在重点分析了撤县(市)设区的正向促进效应以后,更是为各个因素在影响城市公共服务变化时的作用效力提供解释。
As a centralized metropolitan area management method, "Turning Counties(Cities) into Districts" plays a very important role in expanding the development space of central urban areas, optimizing and integrating resources. It also has a significant impact on supply and demand allocation and spatial reorganization of urban public service resources.Taking Hangzhou as a research area, this paper quantitatively measures the urban public service level before and after "Turning Counties(Cities) into Districts" by using DID(Difference in difference) method, studies the spatial distribution of urban public service facilities based on POI data and relevant GIS spatial analysis methods, and discusses the mechanism of this adjustment affecting the supply and distribution of urban public services. The results shows that: 1) "Turning Counties(Cities) into Districts" has a certain role in promoting the level of public services in the new districts,and in different fields of education, medical care and pension, but there exists a difference in public service between the old districts and the new. Compared with Xiaoshan district and Yuhang district, the promotion of public service level in Yuhang district is more obvious. 2) The gap of public service level between the new and old districts has been narrowed after "Turning Counties(Cities) into Districts". However, due to the lag of public service facilities construction, the disparity and inequalities still exist between the old and new districts. The agglomeration degree of different public service facilities in Xiaoshan district and Yuhang district is different, and it is still low compared with the central urban area. 3) The construction of public service system in Hangzhou is paying more attention to the construction of urban sub centers and cluster centers. Under the guidance of urban planning, the public service agglomeration area has spread from the city center to the periphery and has initially appeared agglomeration point in the new districts. 4) Based on the theory of domain reconstruction, urban planning revision, changes of local autonomy and jurisdiction functions have an impact on the supply and demand of urban public service resources. The purpose of this paper is to highlight the positive promotion effect of "Turning Counties(Cities) into Districts", and explain the phenomenon. This mechanism helps to explain the role of various factors in influencing the changes of urban public service and provides a new perspective for the interpretation of the phenomenon of the effect of administrative division adjustment. As Yuhang district and Xiaoshan district remain relatively independent in terms of financial power and have certain particularities, further research will try to explore the general explanatory framework applicable to each case area.
As a centralized metropolitan area management method, "Turning Counties(Cities) into Districts" plays a very important role in expanding the development space of central urban areas, optimizing and integrating resources. It also has a significant impact on supply and demand allocation and spatial reorganization of urban public service resources.Taking Hangzhou as a research area, this paper quantitatively measures the urban public service level before and after "Turning Counties(Cities) into Districts" by using DID(Difference in difference) method, studies the spatial distribution of urban public service facilities based on POI data and relevant GIS spatial analysis methods, and discusses the mechanism of this adjustment affecting the supply and distribution of urban public services. The results shows that: 1) "Turning Counties(Cities) into Districts" has a certain role in promoting the level of public services in the new districts,and in different fields of education, medical care and pension, but there exists a difference in public service between the old districts and the new. Compared with Xiaoshan district and Yuhang district, the promotion of public service level in Yuhang district is more obvious. 2) The gap of public service level between the new and old districts has been narrowed after "Turning Counties(Cities) into Districts". However, due to the lag of public service facilities construction, the disparity and inequalities still exist between the old and new districts. The agglomeration degree of different public service facilities in Xiaoshan district and Yuhang district is different, and it is still low compared with the central urban area. 3) The construction of public service system in Hangzhou is paying more attention to the construction of urban sub centers and cluster centers. Under the guidance of urban planning, the public service agglomeration area has spread from the city center to the periphery and has initially appeared agglomeration point in the new districts. 4) Based on the theory of domain reconstruction, urban planning revision, changes of local autonomy and jurisdiction functions have an impact on the supply and demand of urban public service resources. The purpose of this paper is to highlight the positive promotion effect of "Turning Counties(Cities) into Districts", and explain the phenomenon. This mechanism helps to explain the role of various factors in influencing the changes of urban public service and provides a new perspective for the interpretation of the phenomenon of the effect of administrative division adjustment. As Yuhang district and Xiaoshan district remain relatively independent in terms of financial power and have certain particularities, further research will try to explore the general explanatory framework applicable to each case area.
引文
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[6]韩永辉,黄亮雄,舒元.县域行政区划改革的绩效分析——以“撤市设区”为切入点[J].经济学报,2014(4):49-67.
[7]殷洁,罗小龙.从撤县设区到区界重组——我国区县级行政区划调整的新趋势[J].城市规划,2013,37(6):9-15.
[8]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[J].经济地理,2015,35(8):61-67.
[9]傅勇.财政分权、政府治理与非经济性公共物品供给[J].经济研究,2010,45(8):4-15,65.
[10]胡舒扬,罗震东.省域城镇化加速期行政区划调整的机制、特征与影响研究——以江苏省为例[J].现代城市研究,2015(2):79-86.
[11]张京祥.省直管县改革与大都市区治理体系的建立[J].经济地理,2009,29(8):1 244-1 249.
[12]吴晨玮.基于城市POI点的西安市中心城区公共服务设施空间布局优化研究[D].西安:西北大学,2017.
[13]安园园.近三十年来国内公共服务研究述评——基于CSSCI数据库的分析[J].社会主义研究,2017(5):154-164.
[14] Okorafor O,Thomas S. Protecting resources for primary health care under fiscal federalism:options for resource allocation[J]. Health Policy Plan,2007,22(6):415-426.
[15] Rhys Andrews,Steve Martin. Regional Variations in Public Service Outcomes:The Impact of Policy Divergence in Eng‐land,Scotland and Wales[J]. Regional Studies,2010,44(8):919-934.
[16] Costa Font J,Rico A. Devolution and the interregional inequalities in health and healthcare in Spain[J]. Regional Stud‐ies,2006,40(8):875-887.
[17]李斌,李拓,朱业,等.公共服务均等化、民生财政支出与城市化——基于中国286个城市面板数据的动态空间计量检验[J].中国软科学,2015(6):79-90.
[18]赵建国,廖藏宜.我国地区间基本公共服务供给均等化问题分析——基于中央财政转移支付的视角[J].宏观经济研究,2015(8):8-14.
[19]陈希聪.省内财政分权、转移支付与支出偏好对区域公共服务均等化的影响研究[D].长春:吉林大学,2017.
[20]范柏乃,傅衍,卞晓龙.基本公共服务均等化测度及空间格局分析——以浙江省为例[J].华东经济管理,2015,29(1):141-147.
[21]张建清,严妮飒.长江中游城市群基本公共服务均等化的测度与特征分析[J].生态经济,2017,33(1):102-106.
[22]熊兴,余兴厚,王宇昕.我国区域基本公共服务均等化水平测度与影响因素[J].西南民族大学学报:人文社科版,2018(3):108-116.
[23]高军波,周春山,王义民,等.转型时期广州城市公共服务设施空间分析[J].地理研究,2011,30(3):424-436.
[24] Ngamini N A,Philippe A. Optimizing the two-step floating catchment area method for measuring spatial accessibility to medical clinics in Montreal[J]. BMC Health Services Re‐search,2011,11(1):166.
[25] Ruiz G F,Zapata J T,Garavito B L. Colombian health care system:results on equity for five health dimensions,2003-2008[J]. Revista Panamericana De Salud Pública,2013,33(2):107-115.
[26] Wart M R V,West J P,Bowman J S,et al. Human Resource Management in Public Service:Paradoxes,Processes,and Prob‐lems 5ed[M]. London:Sage,2015.
[27]高军波,周春山.西方国家城市公共服务设施供给理论及研究进展[J].世界地理研究,2009,18(4):81-90.
[28]闫凤英,郭文秀.基于GIS的县域医疗卫生设施可达性研究[J].地理空间信息,2016,14(10):39-42.
[29]谭勇,皮灿,何东进,等.广州市城乡公共服务设施空间特征及其成因分析[J].热带地理,2014,34(2):241-247.
[30]钟少颖,杨鑫,陈锐.层级性公共服务设施空间可达性研究——以北京市综合性医疗设施为例[J].地理研究,2016,35(4):731-744.
[31]汤放华,莫文波,张曦,等.基于POI数据的公共服务设施空间分布研究[J].城市建筑,2017(27):35-39.
[32]伍芳羽.基于POI大数据的南京公共服务业态空间布局均等化研究[J].建筑与文化,2017(6):43-45.
[33]徐高峰,王伟,冯羽.大数据支持下的北京城乡公共服务均等化评价探析[J].小城镇建设,2017(2):32-37.
[34]高琳.大都市辖区合并的经济增长绩效——基于上海市黄浦区与南市区的合并案例研究[J].经济管理,2011,33(5):38-45.
[35]叶初升,高洁.行政区划调整的经济绩效——来自县改区的证据[J].广西社会科学,2017(1):61-68.
[36]浩飞龙,王士君,冯章献,等.基于POI数据的长春市商业空间格局及行业分布[J].地理研究,2018,37(2):366-378.
[37]王法辉.基于GIS的数量方法与应用[M].北京:商务印书馆,2009.
[38]禹文豪,艾廷华,杨敏,等.利用核密度与空间自相关进行城市设施兴趣点分布热点探测[J].武汉大学学报:信息科学版,2016,41(2):221-227.
[39] Fotheringam A S,Brunsdon C,Charlton M. Quantitative Geography:Perspectives on Spatial Data Analysis[M]. London:Sage,2000.
[40]陈蔚珊,柳林,梁育填.基于POI数据的广州零售商业中心热点识别与业态集聚特征分析[J].地理研究,2016,35(4):703-716.
[41]殷洁,罗小龙.尺度重组与地域重构:城市与区域重构的政治经济学分析[J].人文地理,2013(2):67-73.
[42]杨乾忠.绍兴“三区”公共服务融合的问题与对策研究[J].经贸实践,2016(3):314-315.
[2] Fielding A J. Migration and Urbanization in Western Europe Since 1950[J]. The Geographical Journal,1989,155(1):60-69.
[3] Borja J,Castells M. Local and Global:Management of Cities in the Information Age[J]. Berkeley Planning Journal,2000,65(2):232-233.
[4] Redding,Stephen J,Daniel M Sturm. The Costs of Remoteness:Evidence from German Division and Reunification[J]. Ameri‐can Economic Review,2008(5):1 766-1 797.
[5]李郇,徐现祥.中国撤县(市)设区对城市经济增长的影响分析[J].地理学报,2015,70(8):1 202-1 214.
[6]韩永辉,黄亮雄,舒元.县域行政区划改革的绩效分析——以“撤市设区”为切入点[J].经济学报,2014(4):49-67.
[7]殷洁,罗小龙.从撤县设区到区界重组——我国区县级行政区划调整的新趋势[J].城市规划,2013,37(6):9-15.
[8]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[J].经济地理,2015,35(8):61-67.
[9]傅勇.财政分权、政府治理与非经济性公共物品供给[J].经济研究,2010,45(8):4-15,65.
[10]胡舒扬,罗震东.省域城镇化加速期行政区划调整的机制、特征与影响研究——以江苏省为例[J].现代城市研究,2015(2):79-86.
[11]张京祥.省直管县改革与大都市区治理体系的建立[J].经济地理,2009,29(8):1 244-1 249.
[12]吴晨玮.基于城市POI点的西安市中心城区公共服务设施空间布局优化研究[D].西安:西北大学,2017.
[13]安园园.近三十年来国内公共服务研究述评——基于CSSCI数据库的分析[J].社会主义研究,2017(5):154-164.
[14] Okorafor O,Thomas S. Protecting resources for primary health care under fiscal federalism:options for resource allocation[J]. Health Policy Plan,2007,22(6):415-426.
[15] Rhys Andrews,Steve Martin. Regional Variations in Public Service Outcomes:The Impact of Policy Divergence in Eng‐land,Scotland and Wales[J]. Regional Studies,2010,44(8):919-934.
[16] Costa Font J,Rico A. Devolution and the interregional inequalities in health and healthcare in Spain[J]. Regional Stud‐ies,2006,40(8):875-887.
[17]李斌,李拓,朱业,等.公共服务均等化、民生财政支出与城市化——基于中国286个城市面板数据的动态空间计量检验[J].中国软科学,2015(6):79-90.
[18]赵建国,廖藏宜.我国地区间基本公共服务供给均等化问题分析——基于中央财政转移支付的视角[J].宏观经济研究,2015(8):8-14.
[19]陈希聪.省内财政分权、转移支付与支出偏好对区域公共服务均等化的影响研究[D].长春:吉林大学,2017.
[20]范柏乃,傅衍,卞晓龙.基本公共服务均等化测度及空间格局分析——以浙江省为例[J].华东经济管理,2015,29(1):141-147.
[21]张建清,严妮飒.长江中游城市群基本公共服务均等化的测度与特征分析[J].生态经济,2017,33(1):102-106.
[22]熊兴,余兴厚,王宇昕.我国区域基本公共服务均等化水平测度与影响因素[J].西南民族大学学报:人文社科版,2018(3):108-116.
[23]高军波,周春山,王义民,等.转型时期广州城市公共服务设施空间分析[J].地理研究,2011,30(3):424-436.
[24] Ngamini N A,Philippe A. Optimizing the two-step floating catchment area method for measuring spatial accessibility to medical clinics in Montreal[J]. BMC Health Services Re‐search,2011,11(1):166.
[25] Ruiz G F,Zapata J T,Garavito B L. Colombian health care system:results on equity for five health dimensions,2003-2008[J]. Revista Panamericana De Salud Pública,2013,33(2):107-115.
[26] Wart M R V,West J P,Bowman J S,et al. Human Resource Management in Public Service:Paradoxes,Processes,and Prob‐lems 5ed[M]. London:Sage,2015.
[27]高军波,周春山.西方国家城市公共服务设施供给理论及研究进展[J].世界地理研究,2009,18(4):81-90.
[28]闫凤英,郭文秀.基于GIS的县域医疗卫生设施可达性研究[J].地理空间信息,2016,14(10):39-42.
[29]谭勇,皮灿,何东进,等.广州市城乡公共服务设施空间特征及其成因分析[J].热带地理,2014,34(2):241-247.
[30]钟少颖,杨鑫,陈锐.层级性公共服务设施空间可达性研究——以北京市综合性医疗设施为例[J].地理研究,2016,35(4):731-744.
[31]汤放华,莫文波,张曦,等.基于POI数据的公共服务设施空间分布研究[J].城市建筑,2017(27):35-39.
[32]伍芳羽.基于POI大数据的南京公共服务业态空间布局均等化研究[J].建筑与文化,2017(6):43-45.
[33]徐高峰,王伟,冯羽.大数据支持下的北京城乡公共服务均等化评价探析[J].小城镇建设,2017(2):32-37.
[34]高琳.大都市辖区合并的经济增长绩效——基于上海市黄浦区与南市区的合并案例研究[J].经济管理,2011,33(5):38-45.
[35]叶初升,高洁.行政区划调整的经济绩效——来自县改区的证据[J].广西社会科学,2017(1):61-68.
[36]浩飞龙,王士君,冯章献,等.基于POI数据的长春市商业空间格局及行业分布[J].地理研究,2018,37(2):366-378.
[37]王法辉.基于GIS的数量方法与应用[M].北京:商务印书馆,2009.
[38]禹文豪,艾廷华,杨敏,等.利用核密度与空间自相关进行城市设施兴趣点分布热点探测[J].武汉大学学报:信息科学版,2016,41(2):221-227.
[39] Fotheringam A S,Brunsdon C,Charlton M. Quantitative Geography:Perspectives on Spatial Data Analysis[M]. London:Sage,2000.
[40]陈蔚珊,柳林,梁育填.基于POI数据的广州零售商业中心热点识别与业态集聚特征分析[J].地理研究,2016,35(4):703-716.
[41]殷洁,罗小龙.尺度重组与地域重构:城市与区域重构的政治经济学分析[J].人文地理,2013(2):67-73.
[42]杨乾忠.绍兴“三区”公共服务融合的问题与对策研究[J].经贸实践,2016(3):314-315.
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