京津冀协同治理的回顾与前瞻

doi:10.18306/dlkxjz.2019.01.001

Abstract

Abstract:

Beijing-Tianjin-Hebei regional governance is a series of effective measures and is associated with governments' collaborative development process that has changed from the government level control to various stakeholders coordinated governance, from top-down competition and cooperation to synergistic collaboration of all levels. After more than 30 years' efforts, the academic community and the government have obtained a rich set of research achievements in the regional governance of the Beijing-Tianjin-Hebei region. In order to improve the regional governance effect of the Beijing-Tianjin-Hebei region, this article compiles the relevant regional studies since 1984 and attempts to clarify the context and changes of regional governance research of the Beijing-Tianjin-Hebei region from the spatial and temporal aspects, and analyzes the governance model, coordination system, and development strategy of the current Beijing-Tianjin-Hebei regional governance approach. The process of coordinating the governance of the Beijing-Tianjin-Hebei region is the interaction and integration of academia and the government, and the role of the government has been dominant. Future research will deepen and refine the understanding on the governance subjects, governance mechanisms, governance effectiveness evaluation, and coordinated development of culture, health care, and pension system.

Key words: Beijing-Tianjin-Hebei region, regional coordinated development, synergistic governance, governance model, coordination system, win-win cooperation

Dan CUI, Hao WU, Dianting WU. A review and prospect of regional governance in the Beijing-Tianjin-Hebei region[J].PROGRESS IN GEOGRAPHY, 2019, 38(1): 1-14.

Figures/Tables 5

Fig.1

Tab.1

Tab.2

Major historical events of Beijing-Tianjin-Hebei regional governance (2001-2013)"

年份	重大历史事件	核心内容及举措
2001	京津冀北(大北京地区)城乡空间发展规划研究	核心范围包括北京、天津、唐山、保定、廊坊,辐射承德、秦皇岛、张家口、沧州以及石家庄
2004	环渤海经济圈合作与发展高层论坛	研究制定《环渤海经济圈发展战略规划》,争取将其列入国家“十一五”规划
2004	京津冀区域经济发展战略研讨会提出“廊坊共识”	就一些原则问题达成共识,提出召开北京、天津、河北省市长联席会议
2004	京津冀都市圈区域规划	京津冀都市圈区域规划进入编制调研阶段,未能在“十一五”期间出台
2004	京津冀三省市信息化工作联席会议制度	提出促进河北与京津地区沟通交流和区域合作的一些举措
2004	亚洲开发银行发布的《河北省经济发展战略研究》中首次提出“环京津贫困带”	重点研究京津冀的贫富差距与发展不平衡问题,指出环首都共有25个国家级和省级贫困县
2004	京、津、冀、晋等7省(市、区)领导在廊坊达成《环渤海区域合作框架协议》	建立类似长三角市长联席会议合作联系机制,覆盖环渤海区域的5省2市
2004	北京城市总体规划(2004—2020)提出“两小时交通圈”	提出重点从交通与基础设施方面入手,缩短与津冀地区的时间距离
2005	京津冀人才开发一体化研讨会上达成《京津冀人才开发一体化合作协议》	探索建立京津冀人才信息共享、人才流动、人才培养合作等合作机制
2006	北京市十一五规划纲要提出加快发展京津冀都市圈,天津市十一五规划纲要提出加强和京冀合作,河北省“十一五”规划纲要提出继续深化发展“两环开放带动”战略	京津冀三地均在“十一五”规划期间响应国家“十一五”规划号召,提出加强跨区域合作,河北省的“两环开放带动”战略的指向性最为明显
2006	京津冀地区城乡空间发展规划研究二期报告	提出构筑“一轴三带”空间发展骨架,即京津发展轴、滨海新兴发展带、山前传统发展带,以及燕山—太行山山区生态文化带
2006	北京市人民政府和河北省人民政府关于加强经济与社会发展合作备忘录	京冀重点在交通基础设施、环境保护、能源开发等9个方面展开合作
2008	第一次京津冀发改委区域工作联席会上签署《北京市、天津市、河北省发改委建立“促进京津冀都市圈发展协调沟通机制”的意见》	提出建立京津冀三地联席会和联络员制度和发改委区域工作信息发布制度
2009	京津冀晋蒙政协区域经济发展论坛共识	覆盖了5省2市地区,通过了《京津冀晋蒙政协区域经济发展论坛纪要》
2010	河北省政府提出“关于加快河北省环首都经济圈产业发展的实施意见”	重点围绕“13县1圈4区6基地”,打造环首都经济圈
2010	在进一步加强京冀合作座谈会上,达成一揽子建设环首都经济圈协议	河北在燕郊成立“加快环首都经济圈产业发展协调办公室”,加强京冀对接
2010	国家“十二五”规划纲要提出加快京津冀一体化发展	明确提出抓紧编制首都经济圈一体化发展的相关规划,加强顶层设计
2011	首届京津冀区域合作高端会议召开	倡议共同建设起京津冀城市群
2013	北京市和天津市关于加强经济与社会发展合作协议	重点在区域规划、交通基础设施、产业转移等10个方面加强合作
2013	北京市和天津市工作交流座谈会上,京津签署《贯彻落实京津冀协同发展重大国家战略,推进实施重点工作协议》、《共建滨海-中关村科技园合作框架协议》等6项合作协议	天津市通过加快推进京津产业新城、京津合作示范区等平台和产业园区建设,率先承接北京产业转移,提升天津的整体竞争力
2013	河北与北京、天津分别签署《2013至2015年合作框架协议》、《深化经济与社会发展合作框架协议》	河北与北京、天津分别就首都经济圈和津冀区域一体化达成合作共识
2013	京津冀地区城乡空间发展规划研究三期报告	首次提出“畿辅新区”概念,提出京津冀需要在中心城区之外寻找合适地点,转移部分的国家机构和首都职能
2013	京津冀及周边地区落实大气污染防治行动计划实施细则	覆盖北京市、天津市、河北省、山西省、内蒙古自治区、山东省,重点降低细颗粒物(PM_2.5)浓度

Tab.2

Tab.3

Major historical events of Beijing-Tianjin-Hebei regional governance (since 2014)"

年份	重大历史事件	核心内容及举措
2014	习近平总书记主持召开京津冀三地协同发展座谈会	强调京津冀要打破“一亩三分地”的思维,建立起科学长效的机制
2014	政府工作报告中提出“加强环渤海及京津冀地区经济协作”	提出京津冀协同发展是重大国家战略,将京津冀协同发展提上新高度
2014	京津冀协同发展领导小组	由时任副总理张高丽担任组长,组织推动京津冀区域发展规划的编制工作
2014	京津冀交通一体化领导小组	推动京津冀三地交通运输管理部门合作
2014	京津冀协同发展税收工作领导小组	推动京津冀三地税收的合作,通过了《京津冀协同发展税收工作领导小组工作方案》
2014	中央经济工作会议	提出进一步加快京津冀协同发展
2014	京津冀协同发展工作推进会议	提出重点加快交通、环保、产业转移3个重点领域的协同发展
2015	京津冀协同发展规划纲要	明确“一核、双城、三轴、四区、多节点”布局,有序疏解北京非首都功能,实现三地协同发展
2015	天津市城市总体规划(2015—2030年)	明确天津市在京津冀协同发展中的“三区一基地”功能定位
2015	京津冀协同发展交通一体化规划	形成“四纵四横一环”的网络化格局,京津石中心城区与新城、卫星城之间形成“一小时通勤圈”
2015	成立京津冀大气污染防治协作小组	打破京津冀大气污染治理的行政区域限制,加强跨区域的生态环境保护联合行动
2015	环渤海地区合作发展纲要	覆盖北京、天津、河北、山西、内蒙古、辽宁、山东7省(市、区),助力京津冀协同发展
2015	推进京津冀交通一体化率先突破的实施方案	有序推进京津冀交通重点项目建设,加强河北省11个设区市的高速公路建设工作
2015	北京市新增产业的禁止和限制目录(2014、2015年)	在《国民经济行业分类》基础上,按照禁止性和限制性2类按区域疏解部分产业
2015	京津冀城际铁路网规划修编方案(2015—2030年)	以“京津、京保石、京唐秦”为核心轴线,加快构建以轨道交通为骨干的京津冀城际交通网络
2015	京津冀协同发展产业转移对接企业税收收入分享办法	产业迁出地区和产业迁入地区共同分享增值税、企业所得税和营业税三税地方分成部分
2015	开发性金融支持京津冀协同发展合作备忘录	由国家开发银行主导,2015—2017年期间,向京津冀协同发展领域提供融资总量2.1万亿元
2016	中关村国家自主创新示范区京津冀协同创新共同体建设行动计划(2016—2018年)	推动中关村各类创新主体聚焦“4+N”重点区域,构建政产学研用结合的跨京津冀科技创新园区链,发挥中关村示范区的辐射带动作用
2016	京津冀大气污染防治强化措施(2016—2017年)	重点部署“电代煤”、“气代煤”工程,治理排查散乱污企业,大幅度降低PM_2.5排放
2016	北京城市总体规划(2016—2035年)	加快非首都功能疏解,率先推动京津保地区的产业承接,加快北京城市副中心与雄安新区建设
2016	京津冀协同发展生态环境保护规划	到2020年,京津冀地区的PM_2.5年均浓度控制在64 μg/m³左右,能源结构得到明显改善
2016	河北省建设京津冀生态环境支撑区规划 (2016—2020年)	划定资源环境生态红线,将全省划分为“五大分区”,重点推进大气污染防治等6项工作
2016	京津冀产业转移指南	将产业疏解与转移相结合,构建京津走廊高新技术及生产性服务业产业带等五点产业转移带
2016	“十三五”时期京津冀国民经济和社会发展规划	全国第一个跨省市的“十三五”规划,着力打破京津冀“一亩三分地”格局
2017	京津冀及周边地区2017年大气污染防治工作方案	覆盖北京、天津、河北、山西、山东、河南的“2+26”城市,加大化解过剩产能力度,加快清洁取暖
2017	京津冀能源协同发展行动计划(2017—2020年)	按照“宜气则气、宜电则电”原则,推进京津冀地区的清洁能源替代,大幅降低煤炭能源消耗
2017	京津冀人大立法项目协同办法	京津冀在拟定五年规划或者年度计划时,应当优先安排涉及京津冀协同发展的重点项目
2017	京津冀人才一体化发展规划(2017—2030年)	通过搭建专家数据库、人才协会联盟等平台,加强跨区域人才合作交流,推进创新成果转化
2017	推进京津冀民航协同发展实施意见	推动北京“双枢纽”机场与天津机场、石家庄机场的有效衔接,形成京津冀世界级机场群

Tab.3

Tab.4

The six main modes of Beijing-Tianjin-Hebei regional governance"

模式	具体内涵	相关实践举例
空间及区域规划	包括区域规划、城市规划、城市群规划等(段娟, 2015),以及各类专项规划及实施方案	京津冀北地区城乡空间发展规划研究京津冀协同发展规划纲要京津冀协同发展交通一体化规划京津冀协同发展生态环境保护规划北京市新增产业的禁止和限制目录京津冀产业转移指南 “十三五”时期京津冀国民经济和社会发展规划等
行政区划调整	包含省直管县、撤县设市、市辖区内部调整、撤县设区、行政级别升格等(周伟林等, 2007)	廊坊市升格地级市;撤廊坊地区,武安县撤县设县级市设立唐山市曹妃甸区在河北省雄县、容城、安新等3县及周边部分区域设立雄安新区等
省际领导协调机制	包含成立市长联席会、政协组织联席会等,加强跨区域的高层次沟通协调	华北地区经济技术合作协会环渤海地区经济联合市长联席会北京河北市长、专员联席会制度京津冀三省市信息化工作联席会议制度京津冀发改委区域工作联席会议等
中央政府统筹协调机制	在中央政府领导下,成立跨区域领导和协作机构,组织重点基础设施建设,重大项目开发等	京津冀协同发展领导小组京津冀交通一体化领导小组京津冀协同发展税收工作领导小组京津冀大气污染防治协作小组等
省际合作机制	包括合作协议、备忘录、经济协作区等,加强具体事务的沟通合作	京津冀人才开发一体化合作协议北京市人民政府和河北省人民政府关于加强经济与社会发展合作备忘录北京市天津市关于加强经济与社会发展合作协议等
官民共建合作机制	包括研讨会、论坛等,作为政府合作的有效补充	京津冀区域经济发展战略研讨会京津冀城市发展协调研讨会京津冀经济一体化区域合作论坛等

Tab.4

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年份	重大历史事件	核心内容及举措
1976	京津唐国土规划课题研究	首次使用了京津冀跨区域的概念
1981	华北地区经济技术合作协会	北京、天津、河北、陕西、内蒙5省(市、区)加强跨地区物资调配
1981	华北经济技术协作区	通过计划管理方式,加强华北五省市的物资协作、技术协作和经济联合
1982	北京城市建设总体规划方案中首次提到“首都圈”概念	内圈包括北京、天津、唐山、廊坊、秦皇岛,外圈包括承德、张家口、保定、沧州
1982	京津唐国土规划纲要研究,京唐地区国土总体规划	地域范围包括北京、天津、唐山、秦皇岛和廊坊,旨在调整京津唐地区的生产力及人口布局
1986	环渤海地区经济联合市长联席会/环渤海区域合作市长联席会	由时任天津市市长的李瑞环同志提出,旨在加强环渤海区域的协调合作
1988	成立环京经济协作区、建立北京河北市长专员联席会制度	涵盖北京、保定、廊坊、唐山、秦皇岛、张家口、承德,加强生产力扩散与配套
1993	河北省环渤海湾一线地区开放开发规划纲要	提出重点沿京津秦铁路延伸,形成秦唐廊冀北开放带,加强与京津的经济联系
1995	河北省提出“两环开放带动”战略,并写入河北省九五计划	“两环”指代环渤海、环京津,旨在加强与京津冀区域的全方位、多层次合作
1996	“九五计划”中提出建设“环渤海综合经济圈”	覆盖范围包括辽东半岛、山东半岛和京津冀地区
1996	《北京市经济发展战略研究报告》首次提出“首都经济圈”	以京津为核心,覆盖唐山、秦皇岛、承德、张家口、保定、廊坊、沧州7个城市

A review and prospect of regional governance in the Beijing-Tianjin-Hebei region

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