Towards coordination of spatial relations: Understanding Chinese mega-regionalization from a secondary city perspective

Abstract

Mega-regional planning in China is expected to tackle intra-regional unevenness, namely the development gap between regional core cities and the surrounding secondary cities. However, mega-regionalization processes seem to further increase the centrality of cores and push secondary cities towards greater polarization and peripheralization, as they lose socioeconomic vitality, industrial capacity, and political voice. To reflect on why mega-regions are not fulfilling their role of rebalancing regional urban systems, we conceptualize mega-regionalization as a mechanism to coordinate spatial relations within a territory and build a novel framework to analyze the relations between core and secondary cities. First, we show that visions of mega-regional planning regarding core-secondary relations pursue goals of morphological polycentricity, flow multi-directionality, and functional complementarity. Then, we use thematic analysis to evaluate the policy orientations of mega-regional planning to achieve these goals and extract three policy themes governing core-secondary spatial relations - coexistence, connectivity, and cooperation. These can systematically redefine mega-regional planning mechanisms by giving a central role to the spatial relations between core and secondary cities. Emphasizing spatial relations to conceptualize mega-regional governance allows a novel reflection on the challenges of unevenness grounded in the perspective of secondary cities. This deepens our understanding of governance mismatches that keep ideal visions and policy orientations misaligned when seen from secondary cities. Place, priority, and actor mismatches limit the potential of mega-regionalization to respond to their challenges. This research provides a relational understanding of mega-regions, calling for more attention to secondary cities, and the development of more balanced and sustainable mega-regions.