城市群公共服务一体化因何难以实现——一个基于行政割据分析框架的解释

Why is It Difficult to Realize the Integration of Public Services in Urban Agglomerations?——An Interpretation Based on the Framework of Administrative Segmentation

城市群已经成为当前区域发展基本格局的核心和新型城镇化的主体形态。作为城市群进一步提质增效的必由之路,公共服务一体化仍面临重重阻碍。从行政割据的分析框架出发,理解城市群公共服务一体化困境的核心就是要把握行政割据现象,研究总结出其具有三重属性:一是普遍性,来源于城市群概念不明和空间范畴盲目扩大;二是破坏性,来源于公共服务对政府的过度依赖;三是复杂性,来源于职能性割据、地域性割据和层级性割据等多种行政割据现象的共现和相互加强。为了降低和消除行政割据的负面影响,有必要从国家层面构建城市群准入与扩容机制,构建公共服务的多元主体供给结构,以及促成地方政府良性竞合关系的形成。

Urban agglomeration has become the core of the current basic pattern of regional development and the main form of new urbanization.However,as the necessity to further improve the quality and efficiency of urban agglomeration,public service integration still faces numerous obstacles.Starting from the analytical framework of administrative division,the core of understanding the predicament of public service integration in urban agglomerations is to grasp the phenomenon of administrative division and its three attributes can be summarized as follows:first,universality.It comes from the unclear concept of urban agglomerations and the blind expansion of spatial dimension;Second,destruction.It comes from the over-dependence of public services on the government;Third,complexity.It comes from the co-occurrence and mutual strengthening of administrative division phenomena such as functional division,regional division and hierarchical division.In order to reduce and eliminate the negative effects of administrative division,it is necessary to construct the mechanism of access and expansion of urban agglomeration from the national level,construct the multi-supplier structure of public services,and promote the formation of the positive relationship of competition and cooperation between local governments.