Facing Contradictory Cross-boundary Megacities: From Space-oriented Technical Planning to Coordinative Spatial Governance——Case of Jiangsu-Shandong-Anhui Trans-provincial Region, China

With China’s urbanization embarking on a new stage of regional integration, the intra-megacities have been experiencing more and more strong interactions. Meanwhile, the complex inter-regional contradictions are becoming extremely acute, such as environmental pollution, ecological destruction and industries competition etc., especially in the cross-boundary region. However, the current space-oriented technical planning schemes are far from meeting the needs of regional coordination. New planning strategies of the cross-border region are urgent to be explored. This paper’s hypothesis is that, instead of merely space-oriented technical planning tools, it is the coordinative spatial governance that could effectively promote regional integration. Specifically, under China’s political geography, the multi-spatial and multi-level governments of different powers and responsibilities game with each other, which is actually the root for intra-regional spatial conflicts. This paper thereby establishes a governance-led coordinative framework based on different interests and shared development goals. It is first necessary to investigate the willingness of local governments, conducing a wish list and a negative list. And then clarifying their common characteristics of culture, inter-city linkages, nature resources etc., thereby achieving shared development goals considering them as a whole in higher regional level. Then, focusing on the conflicting cross-boundary zones and their special spatial contradictions, win-win cooperative policies and specific mechanisms are established through diverse governance-led coordinative mechanisms. This paper then analyses the application of the framework in practice by using a case study of Jiangsu-Shandong-Anhui trans-provincial region, China. This region has a total population of more than 30million, including 3 provinces, 4 megacities and 12 counties. There are three important findings in the case study. Firstly, under the framework, the intra-megacities collectively designated a series of creative, targeted and effective coordinative mechanisms and policies in multiple fields as following: (1)Co-constructing the trans-provincial industrial parks; (2)Forming manufacturing technology innovation alliances; (3)Joint building the scenic spots, tourism network platform, and joint marketing; (4)Promoting the sharing of public service facilities via cooperatively-run schools and co-established practice base; (5)Promoting inter-provincial transportation operation; (6)Unifying the technical requirements for enterprises to utilize the shared nature resources, which are included in legislations and policies etc. Secondly, a planning consultation platform of national-provincial-municipal level was crucial for the cooperative mechanism designation and sub-plan revising. The central government established a national coordinating body for regional space governance. The provincial governments convened a cross-boundary coordination committee and formulated trans-provincial space planning as a negotiating platform. The local governments spontaneously formed inter-megacities alliances to jointly formulate cross-boundary planning, discussed relevant sub-plans and cooperative mechanisms. Thirdly, a planning implementation system was vital, including regional special fund, transregional cooperation organizations and national-provincial joint conference, planning implementation assessment etc. As a representative response on regional integration in China, this study establishes a proactive solution of governance-led coordination framework focusing on cross-boundary region. The practical experience of theoretical framework application to Jiangsu-Shandong-Anhui trans-provincial region expands our understanding of how megacities achieving their different development interests under the “strong government” and how collaborative mechanism contributes to this. It offers valuable references for many developing countries and regions.