“行政区划本身也是一种重要资源”的理论创新与应用

New discussion and reflection on "Administrative divisionitself can be seen as a resource"

行政区划是国家治理体系和组织结构的基本形式,也是中央政府统治和管理全国各地的有效手段,是事关国家政治、经济和社会发展全局的重大战略问题。就"行政区划本身也是一种重要资源"的论断进行多视角的分析,提出"行政区划资源论"这一全新的理论解读。分别从空间、权力、行政和政策角度探讨行政区划的资源属性,并从行政资源的空间配置、生产要素的优化配置、权力资源的空间整合、空间资源的优化重组和政策资源的空间载体等多个角度剖析行政区划的资源效应,最后提出应当将"行政区划资源论"这一新论断积极应用至主体功能区规划、空间规划、空间治理体系建设等实践领域,完善目前行政区划设置和调整的思路与要求,建立健全与国家发展战略及综合配套改革相适应的行政区划体系和管理框架。

Administrative division is the basic form of national governance system and organizational structure, an effective means for the central government to govern and manage all parts of the country, as well as a major strategic issue concerning the overall national political, economic and social development. Since the founding of the People’s Republic of China in 1949, the administrative divisions have been adjusted many times in China. The resource effect produced by the adjustment of administrative divisions has certain regularity and particularity. Generally speaking, administrative divisions are the basic means of national administration and increasing governance capacity. The adjustment and policy making of administrative divisions in different periods are based on the needs of social and economic development and national stability and security at that time. The control policies and key points of administrative divisions in different periods are different. The resource effects of administrative divisions in different periods show certain regularities, such as variability and flexibility in the early years of the founding of new China, reversibility and restraint in the period of the Cultural Revolution(1966-1976), and policy and regulation in the 1980 s. In the1990 s, the adjustment of administrative divisions was characterized by disorder and conservatism. After 2000, the adjustment of administrative divisions has developed towards scale and rationalization. Since 2010, the administrative divisions have become standardized and rationalized. From the perspective of economic development, the administrative divisions in China are not balanced enough to take strategic steps of new urbanization, therefore it is difficult to meet the needs of fine social governance in the new era. This paper makes a multiangle analysis on the argument that administrative division itself can be seen as a resource, and puts forward a new theoretical interpretation of the theory of administrative division as resources. Then it discusses the resource attributes of administrative division from the perspectives of space, power, administration and policy respectively, and analyzes the resource effect of administrative division from several aspects, such as the spatial allocation of administrative resources, the optimized allocation of production factors, the spatial integration of power resources, the optimized reorganization of spatial resources, and the spatial carrier of policy resources. Finally, it is proposed in the paper that the new theory of administrative division resources should be applied to the construction of strategic spatial planning and spatial governance system of major function oriented zoning, the ideas and requirements of current administrative division should be improved, and the administrative division system and management framework which are compatible with the national development strategy and comprehensive supporting reform should be established and improved.