Liu et al.

Frontiers of Urban
Frontiers of Urban and Rural Planning (2023) 1:8
https://doi.org/10.1007/s44243-023-00009-8
and Rural Planning

RESEARCH ARTICLE Open Access

City‑county coordination in spatial planning:

a case study in Wenzhou
Xueliang Liu1*, Tingting Fu2 and Xiangwei Cheng1

Abstract
County-level economy is a major driver of economic growth in Zhejiang Province. However, as it develops, it poses
severe challenges to the comprehensive sustainable development of the cities, particularly Wenzhou. The compre-
hensive spatial planning of Wenzhou should incorporate an comprehensive and coordinated plan for the protection,
development, utilization and restoration of the city’s territorial spaces to tackle the problems caused by decentralized
development. To this end, we propose that the spatial planning of Wenzhou should focus on integrating the main
center of the metropolitan area for coordinated allocation of resources. We have developed the planning strategy
of “Strong Center, Strong Network, Strong Node and New Mechanism” for the main center of Wenzhou metropolitan
area to help Wenzhou boost specialization and build further upon its areas of strength. These efforts help enhance
the comprehensive capacity of Wenzhou through spatial integration.
Keywords Comprehensive spatial planning of cities and counties, Main center of metropolitan area, Spatial
integration, Capacity improvement

1 Introduction Wenzhou’s economy is now on the whole stable, but

The policies implemented by Zhejiang like “province
directly governing county” and “greater autonomy to
counties with strong performance” have enabled county-
level economy to become the main driver of the prov-
ince’s economic growth. However, against the backdrop
of transformation and development, the problems cre-
ated by county-level economy have become increasingly
prominent, presenting great challenges to sustainable
development. These challenges are particularly serious in
Wenzhou and mainly lie in the relative decline of its eco-
nomic status, slow population growth, decrease in pri-
macy as a key city, and lack of comprehensive city-county
coordination.
*Correspondence:
Xueliang Liu
24651899@qq.com
1
Spatial Research Department, Institute of Spatial Planning Research,
Shanghai Tongji Urban Planning & Design Institute, Shanghai, China
2
Institute of Spatial Planning Research, Shanghai Tongji Urban Planning &
Design Institute, Shanghai, China
sees a widening gap with top-performing cities in the
province while facing a catch-up by some other cities.
In terms of GDP, Wenzhou ranks third both in Zhejiang
and the Western Taiwan Straits Economic Zone. For eco-
nomic status, Wenzhou’s economic growth falls behind
other important cities in the province, and its gap with
Hangzhou and Ningbo grows wider. Moreover, with
Shaoxing close on its heels, Wenzhou is at risk of losing
its status as one of the long-standing three poles in Zhe-
jiang’s economy (Fig. 1). The city suffers not only from a
potential decrease in its absolute position in Zhejiang’s
economy, but also a decline in its relative position. In its
heyday, in 2001, Wenzhou’s GDP accounted for 12.5% of
the province’s total. Since then, the share has been on a
downward trend, now down to 10.5%.
Besides the economic bottleneck, Wenzhou’s popula-
tion growth has gradually slowed down, facing the prob-
lem of more outflow than inflow. In 2018, Wenzhou had
9.25 million permanent residents, ranking second in the
province. However, from 2013 to 2018, its permanent
resident population grew by an average of 10,600 per

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Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Fig. 1 Changes in GDP of four major cities in Zhejiang. Source: Zhejiang Statistical Yearbook, 2000–2017
Fig. 2 Changes in population size in Wenzhou. Source: Wenzhou Statistical Yearbook, 2010–2017
year, which was the second-lowest in the province. The
immediate reason is that migrant population in Wen-
zhou has declined and contributes little to the city’s
population growth. From 2010 to 2018, the net inflow
population of Wenzhou decreased from 1.254 million to
970,000 (Fig. 2). In 2018, Wenzhou experienced far more
outflow of people than inflow in the two-way flow of
population with other cities in the province losing up to
403,7001 people.
The “Wenzhou model” is known for a development
path characterized by rural industrialization and con-
struction of small towns outside the central urban areas
by relying on a thriving private economy and relaxed gov-
ernment regulation. This model has allowed Wenzhou
to develop a relatively balanced urban system, where its
1
Source: big data analysis of Chinese mobile phone users jointly by Wen-
zhou Science and Technology Innovation Research Center and Wenzhou
Popper Research Institute for Big Data
Page 2 of 12
counties and cities show strong performance and the pri-
macy of central urban areas is low. The following charts
compare the degrees of primacy of central cities in terms
of population and economy among Hangzhou, Ningbo,
and Wenzhou. As can be seen from the data, the primacy
of the central city in Wenzhou is lower than that of Hang-
zhou and Ningbo (Fig. 3). It is difficult for Wenzhou’s
central cities to fully play their role in driving the devel-
opment of their surrounding areas.
The lack of synergy for development among cities
and counties limits the comprehensive urban capacity
improvement of Wenzhou. For one thing, spatial man-
agement neglects coordinated development. Under the
policy of province directly governing counties (cities),
the districts, counties, and cities mainly focus on their
own development without comprehensive coordination.
Their demand for planning and development is concen-
trated on land use quota. For example, Wenzhou has
been exploring ways to promote the coordinated devel-
opment of Aojiang River basin at the municipal level, but
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Fig. 3 Degree of primacy of central urban areas in Hangzhou, Ningbo, and Wenzhou. Source: Statistical yearbook of cities of Zhejiang, 2017
in fact, Cangnan and Pingyang both attach low impor-
tance to regional integration and the implementation of
regional plans. For another, urban functions lack speciali-
zation and cooperation. The districts, counties, and cities
develop in their own way, resulting in the lack of effective
functional specialization and collaboration on the whole.
The sectoral specialization index put forward by Krug-
man (1992) is used to measure sectoral specialization and
collaboration. The index value is between 0 and 2, and
the larger the value, the less relevant the sectors between
two zones. The 2013 industrial enterprises data is used to
calculate the sectoral specialization index of the central
urban areas and important county-level cities in Hang-
zhou, Ningbo and Wenzhou. Wenzhou gets the largest
index value, indicating that the degree of sectoral irrel-
evance between its downtown and the county-level cities
is higher than that of Hangzhou and Ningbo. This means
that the sectors in Wenzhou are difficult to collaborate
with each other (Table 1).
Table 1 Sectoral specialization index of central urban areas and
key county-level cities in Hangzhou, Ningbo, and Wenzhou in 2013
Urban area Sectoral
Specialization
Index
Wenzhou
Yueqing City 1.12
Rui’an City 1.07
Hangzhou
Jiande City 0.91
Lin’an City 1.02
Ningbo
Cixi City 0.9
Yuyao City 0.84
Source: Industrial enterprises data, 2013
Page 3 of 12
2 Planning concepts
To address the problems created by decentralized devel-
opment, Wenzhou has to carry out spatial integration.
The planning should focus on integrating the main
center of Wenzhou metropolitan area (MCWME) to
promote city-county coordination and improve urban
capacity.
2.1 Benefits and opportunities of integration of the main
center in metropolitan area
2.1.1 Four major benefits
First, the integration of the MCWME helps to agglomer-
ate decentralized economies at the city and county levels.
The aim is to build a strong urban core and enable it to
fully play its role in driving the development of its sur-
rounding areas. The research of Sun and Li (2016) based
on 287 cities at prefecture level and above in China shows
that at the municipal scale, mono-centric spatial organi-
zation tends to bring better economic performance. This
means that building a strong urban core is beneficial to
the economic growth of cities.
Second, the integration helps Wenzhou make break-
throughs in the capacity of producer services and pro-
mote industrial upgrading and the creation of new
growth drivers. The producer services in Wenzhou have
been at a low level of development for many years. Com-
pared with Hangzhou and Ningbo, Wenzhou is also at a
disadvantage in advanced producer services and scientific
and technological R&D. In 2017, Wenzhou fell behind
Hangzhou and Ningbo in terms of the share of the out-
put of advanced producer services in the total output of
the tertiary industry and the R&D expenditure of indus-
trial enterprises above designated size. Only a strong
city center can provide service support for advanced
industries and scientific and technological innovation
activities.
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Third, the integration helps Wenzhou enhances its
appeal to producer service businesses, creating an envi-
ronment to attract investment and talents. Wenzhou suf-
fers from a serious shortage in the supply of high-grade
amenities, lagging behind other regional central cities.
This restricts its ability to attract talents and improve
investment environment. In his research on cities of the
Netherlands, Meijers (2008) found that compared with
polycentric cities, monocentric cities have more high-
grade public amenities for culture, leisure and sports.
Finally, the integration helps Wenzhou improve the
quality of its urban environment and transform from a
manufacturing city to an international city. For Wenzhou,
the integration of the main center of the metropolitan
area can effectively resolve the problems of low-quality,
semi-urbanized and fragmented development, thus prac-
ticing the people-oriented urban concept. Cases in China
proved that improving the built environment can help
improve residents’ health and enhance their subjective
wellbeing (Lin & Sun, 2017; Sun & Yin, 2018).
2.1.2 Three major opportunities
First, the decentralized development of cities and coun-
ties in Wenzhou has hit a bottleneck. Spatial integration
can expand the construction space for the central urban
area and enhance urban capacity. At present, the size
of land use and population in the central urban area of
Wenzhou has approached the planned target value. With
a small space available for development, the city needs to
carry out spatial integration to expand its development
space.
Second, Wenzhou has reached a consensus with Zhe-
jiang Province on spatial integration. At the provincial
level, promoting the building of the four metropolitan
areas as a whole is an important decision and strategic
plan of Zhejiang (General Office of the People’s Gov-
ernment of Zhejiang Province, 2018). For metropolitan
area development, Zhejiang has instructed Wenzhou to
accelerate the development of its metropolitan area while
closely aligning with the requirements to increase the
primacy degree and capacity of the central urban area. At
the municipal level, the Decision of the CPC Wenzhou
Municipal Committee on Comprehensively Improv-
ing the Degree of Primacy of the Central Urban Area
and Accelerating the Building of a Regional Central City
states that integrated development of the main center
of the metropolitan area should break the constraints of
existing administrative divisions and plan and promote
resource allocation, construction of public facilities and
distribution of productive forces in a coordinated way.
Third, the new round of territorial spatial planning
provides a good opportunity for spatial integration. The
Page 4 of 12
spatial integration of Wenzhou metropolitan area coin-
cides with a new round of territorial spatial planning. The
city should seize the opportunity to promote the imple-
mentation of the development strategy of spatial integra-
tion of metropolitan area, so as to provide spatial support
for the realization of higher quality development in the
future.
2.2 Delineation and planning of the main center
of metropolitan area
2.2.1 Delineation
To accurately delineate the MCWME, it is necessary to
clarify the related concepts of metropolitan area. The
concept of metropolitan area was introduced by the
United States in 1910, with the original intention of
establishing statistical spatial units.
According to the statistical criteria for U.S. metropoli-
tan areas in 2010, a county can be included in a metro-
politan area if at least 25% of the employed residents of
the county work in the central county or counties of the
metropolitan area or at least 25% of the employment in
the county is accounted for by workers who reside in
the central county or counties of the metropolitan area.
Japan accepted the American concept of metropolitan
area and translated it into “toshiken” (metropolitan area).
The metropolitan area defined for population census
by the Statistics Bureau of Japan’s Ministry of Internal
Affairs and Communications is also known as the “1.5%
metropolitan area”: a city, town, or village qualifies for
inclusion in a metropolitan area if: i) the number of resi-
dent workers and students commuting to the central city
is 1.5% or more of its total resident population, and ii) it
is contiguous to the central city. In China, the National
Development and Reform Commission defines metro-
politan area as an urbanized spatial form in a megalopo-
lis dominated by (a) supercity(−ies) or megacity(−ies), or
a large metropolis playing a leading part, and within the
basic range of 1-hour commute area. The above concepts
reveal that the core of a metropolitan area should be a
commute area that breaks the constraints of administra-
tive divisions and emphasizes close functional ties.
The MCWME is delineated based on the activ-
ity connection, commute connection, population and
urban distribution among cities and counties in Wen-
zhou. From the perspective of activity connection, the
main center includes areas that see flow of more than
500 people per day from and to the core area based
of Wenzhou on the mobile phone signaling analy-
sis. In regard of commute connection, the main center
includes areas within a 1-hour commute to the center.
In terms of population and urban distribution, big data
technology is used to identify the areas of population
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8 Page 5 of 12

concentration during working hours in various towns/
subdistricts, and the data from China’s third national
land survey is applied to analyze the distribution of the
contiguous land used for development in core and sur-
rounding areas (Fig. 4). Finally, it is determined that the
MCWME covers an area of 2480 km2, accounting for
20.5% of the city’s administrative area. The main center
includes Longwan and Dongtou districts, 10 subdistricts
of Lucheng District, 12 subdistricts of Ouhai District, 12
subdistricts and towns of Yueqing City, 15 subdistricts
and towns in Ruian City, and 7 subdistricts and towns of
Yongjia County (Fig. 5).
2.2.2 Planning concepts
The MCWME is planned mainly based on two concepts:
facilitating specialization and building further upon the
areas of strength.

Fig. 4 Basis for delineation of the MCWME. Sources: Wenzhou Popper Research Institute of Big Data (2018) and China’s third national land survey
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Fig. 5 Scope of MCWME. Source: Provided by the author
Concept 1: facilitating specialization. Sassen’s theory
of micro-environment with global span (1991) empha-
sizes that the specialization of cities is very important
in today’s global economy. Only by highlighting their
own characteristics can they participate in different
loops of the global economy. The MCWME should
build specialized production bases and strategic tech-
nological nodes in the global urban network.
Concept 2: building further upon the areas of
strengths. Industrial development is not a leap
from an existing industry to an unfamiliar one. The
MCWME should adhere to the principles of diversity
and extend and expand to high-end links and fields
based on its existing areas of strengths. This means
further reinforcing the city’s strengths in manufac-
turing to build a global-oriented manufacturing met-
ropolitan area.
Page 6 of 12
3 Planning strategy
To facilitate specialization and build further upon the
areas of strength, we have developed the planning strat-
egy of “Strong Center, Strong Node, Strong Network and
New Mechanism”.
3.1 Strong center
Taking the “Central Vibrant Zone” as the focus of efforts
to enhance the degree of primacy of the central urban
area. As a trend of global urban development, central
urban areas have gradually evolved from a central busi-
ness district with an emphasis on core business func-
tions and high development intensity to a central activity
area that attaches importance to functional integration
and a larger space. Central activity areas exhibit a spatial
development model with multiple functions in a space.
The model makes urban cores full of vitality and meets
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Fig. 6 Functional zoning of Wenzhou central vibrant zone. Source: Provided by the author
the needs for new economic activities and new lifestyles.
A central vibrant zone is usually within a 5-km radius of
the urban core. It generally provides the following func-
tions: control-oriented top-level service, people-oriented
diverse and vibrant space, intelligence-oriented creative
culture, and openness- and export-oriented international
service. Therefore, we propose that the current develop-
ment of Wenzhou central vibrant zone should focus on
strengthening the high-end commercial service function,
integrating culture, leisure, and tourism services, and
facilitating mixed land use (Fig. 6).
Fully leveraging the networking resources of Wenzhou
merchants and strengthening the platform economy.
Nearly 700,000 Wenzhou people have set up businesses
in 131 countries and regions around the world, forming a
Wenzhou merchant network that covers the whole coun-
try and connects to the world. In the network of Wen-
zhou people, merchants and chambers of commerce all
over the world, Wenzhou serves as a hub for domestic
and global exchange. The MCWME should strengthen
the platform economy, encourage Wenzhou merchants
to contribute their talent to Wenzhou, and promote the
upgrading and integration of industrial chain into the
global industrial chain.
Page 7 of 12
3.2 Strong node
Building a town with a strong pool of talent to improve
the level of industrial specialization. In Wenzhou, towns
with strong performance show labor-based urbaniza-
tion. They mainly rely on energy, resources, and cheap
labor for development, resulting in their economic
development lagging behind urbanization. An emphasis
should be placed on building towns with a strong pool
of talent. Efforts should be made to recruit knowledge-
able, technical, and innovative talents to make top-
performing towns more knowledge-based. Moreover,
Wenzhou should focus on creating specialized towns,
building professional production nodes in the regional
network, determining the functional division and inte-
gration of the MCWME, and fully integrating into the
global industrial chain. The aim is to help best-per-
forming towns rely on intelligence and capital for eco-
nomic development while promoting urbanization (Wu
et al, 2015; Wu et al, 2017)(Fig. 7).
Optimizing the layout of scientific and technologi-
cal innovation to build scientific and technological
innovation centers. First, Wenzhou should link up with
Hangzhou, Ningbo, and Shanghai in scientific and tech-
nological innovation and development through regional
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Fig. 7 Functional division and integration in the MCWME. Source: Provided by the author
networks. Second, it should integrate its internal
resources for scientific and technological innovation to
build networked centers for science and technology inno-
vation, including the Daluoshan Science and Technology
Innovation Corridor, Coastal Advanced Smart Manufac-
turing Development Belt, Independent Innovation Park
and smart innovation nodes (Fig. 8).
3.3 Strong network
Building cross-regional public transport to promote
interconnection. For the traffic system in the MCWME,
the biggest problem that rail transit is seriously lagging
Page 8 of 12
behind in serving more areas and providing core func-
tions. Therefore, we suggest that public transport be
organized in a hierarchical way. On top of the planned
rail transit lines, connecting lines should be added to
form a network system of “main rail lines + connect-
ing ring lines”. In this way, a networked rail transit sys-
tem is built to support the functional connection of the
MCWME (Fig. 9).
Pursuing joint environmental development and gov-
ernance for shared benefits to enhance the awareness
of urban integration. First, efforts should be made to
establish a complete and systematic ecosystem, which is
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Fig. 8 Rail transit system of the MCWME. Source: Provided by the author
composed of ecological green and blue networks. Sec-
ond, for whole-territory major environmental problems,
it is necessary to unify relevant plans, standards, regula-
tion policies, and assessment criteria to further promote
joint environmental governance. In addition, an attempt
can be made to build important cluster facilities. A cen-
tral-axis vibrant belt and cross-regional greenways can
be built to eliminate the sense of spatial fragmentation.
Finally, an emphasis should be placed on promoting
the sharing and homogenization of basic public ser-
vices such as education, health care and sports in the
MCWME to enhance the awareness of urban integration
(Fig. 10).
3.4 New mechanism
Innovating the spatial governance model to lay the foun-
dation of integrated system. Wenzhou should seek more
land-use quota and policy support for building its four
pilot production and living service platforms, including
Sanjiangkou Business and Leisure Co-construction Area
jointly built by Lucheng and Yongjia, Liubai Integrated
Page 9 of 12
Service Co-construction Area jointly built by Longwan
and Yueqing, Xianyan-Tangxia Integrated Service Cocon-
struction Area jointly built by Ouhai and Ruian, and
Oufei Integrated Service Co-construction Area jointly
built by Longwan and Ruian. The efforts to build co gov-
ernance platforms across administrative regions help to
promote the economic transformation and upgrading of
the MCWME.
4 Conclusion
County-level economy is a comprehensive economic
system with complete functions. However, as it devel-
ops, it faces difficult challenges to break the constraints
of county-level administrative divisions. As a result,
it is difficult for the whole city to achieve sustainable
development. The comprehensive spatial planning at
city and county levels incorporates an comprehensive
and coordinated plan for the protection, development,
utilization and restoration of territorial spaces under
their own jurisdictions. To tackle the difficulties caused
by decentralized development, we propose that the
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Fig. 9 Layout of scientific and technological innovation in the MCWME. Source: Provided by the author
spatial planning of Wenzhou allows for a coordinated
allocation of resources with the focus on the MCWME
to improve the urban capacity of the entire city.
For the MCWME, we have developed the planning
strategy of “Strong Center, Strong Node, Strong Net-
work and New Mechanism”. This involves applying
specialization construct to build specialized produc-
tion bases and strategic technological nodes in the
global urban network and further reinforcing the city’s
strengths in manufacturing to build a global-oriented
Page 10 of 12
manufacturing metropolitan area. For a strong center,
we propose taking the “Central Vibrant Zone” as the
focus of efforts to enhance the degree of primacy of
the central urban area, fully leveraging the networking
resources of Wenzhou merchants, and strengthening
the platform economy. For a strong node, we suggest
building towns with a strong pool of talent, improv-
ing the level of industrial specialization, optimizing the
layout of scientific and technological innovation, and
establishing scientific and technological innovation
Liu et al. Frontiers of Urban and Rural Planning (2023) 1:8
Fig. 10 Ecosystem of the MCWME. Source: Provided by the author
centers. For a strong network, the suggestion is to build
cross-regional public transport to promote intercon-
nection and pursue joint environmental development
and governance for shared benefits to enhance the
awareness of urban integration. For a new mechanism,
efforts should be made to innovate spatial governance
model to lay the foundation of integrated system.
Acknowledgments
Not Applicable.
Authors’ contributions
LIU Xueliang, FU Tingting and Cheng Xiangwei conceived the study and wrote
the manuscript. Wu Zhiqiang participated in critically revising the content of
the paper. All authors have read and agreed to the published version of the
manuscript.
Funding
The author(s) received no financial support for the research, authorship, and/
or publication of this article.
Availability of data and materials
Not Applicable.
Page 11 of 12
Declarations
Competing interests
The authors declare they have no competing interests.
Received: 3 October 2022 Revised: 11 November 2022 Accepted: 12
November 2022
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