Knowing that it is a pit , how can you still jump?The war of industrial transfer in China s underde

Mondo Social Updated on 2024-01-29

Li Ting. Institute of Public Policy, South China University of Technology.

Under the multiple internal and external shocks, China's industrial transfer has accelerated in recent years, and it has flowed to some underdeveloped counties. However, there are also a series of problems in the industrial transfer of underdeveloped regions to undertake competition: the pursuit of short-term growth and the lack of long-term vision;Transfer to undertake fragmentation, industrial park construction into a "mess";Vicious competition, waste of resources, and the widening of urban-rural differentiation within the county, etc. In view of the above drawbacks, the national level has placed more emphasis on industrial transfer planning and categorical guidance for county development. So, what is the cost and motivation for underdeveloped counties to participate in industrial transfer and undertake competition?Is industrial transfer an "opportunity" or a "trap"?

Based on the investigation of 16 counties and cities in Guangdong Province from February to August 2023, this paper points out that around the goals of common prosperity, the driving force, pressure and space to promote industrial transfer are large. This trend has been further strengthened with the deepening of economic agglomeration and the expansion of regional differentiation. This is the advantage of China's promotion of industrial transfer, and it also implies the possibility of deviating from the law of industrial development. However, this does not mean that there is no room for balanced regional development in underdeveloped counties. The author believes that, on the one hand, the overall planning of industrial transfer should be improved, and the urban agglomerations and industrial belts formed by developed and sub-developed counties should be regarded as the main areas to solve the balance problem in industrial transfer, so as to enhance industrial competitiveness and take into account regional coordinated development. On the other hand, in addition to industrial transfer, financial funds can be directly invested in public services in underdeveloped counties, which is a path with lower costs, higher benefits and stronger publicity.

This article was originally published in the 6th issue of "Cultural Perspective" in 2023, and was originally titled "The "Industrial Transfer Trap" in Underdeveloped Counties", which only represents the author's views for readers' reference.

The "industrial transfer trap" in underdeveloped counties

Formulation of the question

Industrial transfer refers to the re-selection of industrial location and the reconstruction of industrial development space caused by the transformation of industrial competitive advantages between regions in a certain period of time. In China, counties (including counties and districts) are the basic units of industrial competition and undertaking industrial transfer. The competition between different counties around industrial transfer is an important force affecting the formation of industrial transfer order. Like developed and sub-developed counties, underdeveloped counties have also actively joined the competition to undertake industrial transfer, but from the practice of multiple rounds of industrial transfer after the reform and opening up, the results are not ideal.

Soon after the reform and opening up, it was the fourth global industrial transfer, and China's eastern coastal areas became the main undertaking place of industrial transfer of first-mover countries and regions due to their comparative advantages in the outside world and the location advantages in the interior. After 2008, the financial crisis broke out, and the world entered the fifth industrial transfer, and the eastern region is still the main undertaking area. However, due to the deepening of industrialization and urbanization, the rising land and labor costs in the eastern region, and the increasing emphasis at the national level since 2009 to achieve regional coordinated development through the promotion of industrial transfer,[1] the central region, mainly along the north-south Beijing-Guangzhou Line and Beijing-Kowloon Line, and the east-west Longhai Line and Yangtze River Industrial Belt, has gradually become an important industrial undertaking area. With the support and promotion of policies, underdeveloped counties have also actively joined the competition for industrial transfer, but the space for most underdeveloped counties to undertake industrial transfer is extremely limited when the urban agglomerations around the eastern developed areas and the central and western urban agglomerations have not yet been "full", and the capacity of inter-regional transportation infrastructure construction and intra-regional infrastructure construction is limited.

In recent years, due to factors such as the outbreak of the epidemic, the economic downturn and the friction between China and the United States, the following new characteristics have emerged in industrial transfer: First, for the sake of safety and cost reduction, the leading enterprises mainly distributed in developed areas have increased their requirements for near-local development, and the layout of relevant enterprises in developed areas and their surrounding areas has become rigidSecond, in order to circumvent the best barriers, a large number of industries have been transferred to Southeast Asia and other places to become rigid;Third, the economy has entered a downturn, the pressure on enterprises to maintain their survival has increased, and the demand for capacity expansion and industrial transfer has declinedFourth, the domestic market competition involution, overcapacity, and the increase in the demand of enterprises to go overseas have put forward new requirements for enterprises to transfer abroad and accumulate in domestic coastal areasFifth, the need for industrial upgrading and transformation has put forward new requirements for the accumulation of enterprises in areas with a good industrial base, mainly developed and sub-developed counties.

These new trends show that the space for underdeveloped counties to undertake industrial transfer is still declining. The problem is that at present, the enthusiasm of counties in underdeveloped areas to participate in "grabbing business and capital" and industrial transfer to undertake competition is still full[2] Regardless of the fact that problems such as industrial transfer and fragmentation and the construction of industrial parks have become a "mess". At the national level, the problem has also been recognized and corresponding measures have been taken, including strengthening the planning and guidance for industrial transfer, emphasizing the need to guide the development of county towns by category, and preventing the blind construction of population loss counties, mainly underdeveloped counties.

In the face of this reality, the question that needs to be discussed in depth is: what is the cost and motivation for underdeveloped counties to participate in industrial transfer and competition?Does industrial transfer constitute an "opportunity" or a "trap" for underdeveloped counties?On this basis, we can avoid its blind participation in industrial transfer and undertake competition, and explore a truly adapted development path. In February and August 2023, the author and his team went to 16 counties and cities in Guangdong Province [3] to conduct a survey on high-quality development at the county level, which formed an empirical basis for answering the above questions.

The cost of underdeveloped counties undertaking industrial transfer

Because of the prominent problem of uneven regional development, Guangdong is the first province to try to achieve coordinated regional development through the implementation of industrial transfer. In 2002, Guangdong Province called for "actively guiding and promoting the transfer of industries from the Pearl River Delta to mountainous areas" in the "Decision on Accelerating the Development of Mountainous Areas", and since then this policy has been continuously promoted and continuously improved. On the basis of increasing policy and financial support at the provincial level, the basic idea of this policy is to pair up and help the Pearl River Delta and the east, west and north regions of Guangdong, especially the counties and cities located in mountainous areas, around industrial transfer.

However, Guangdong Province has 122 counties and municipalities, of which 48 are in the Pearl River Delta region (excluding Dongguan and Zhongshan), and 74 are in the east, west and north of Guangdong, of which 36 are remote mountainous areas. In terms of undertaking industrial transfer, many counties and districts located in remote mountainous areas, as underdeveloped counties, not only have to compete with the sub-developed counties in the east, west and north of Guangdong and the Pearl River Delta region, but also compete with other regions outside Guangdong. In this fierce competition pattern, and at the same time in the case of limited ability and strength of inter-county pairing, underdeveloped counties also have to pay a certain price to improve their competitiveness, and the more underdeveloped, the greater the price often pays.

1) Debt management without development.

In order to enhance the competitiveness of undertaking industrial transfer, it is a common practice in various places to increase investment in the construction of industrial parks and help enterprises alleviate investment pressure through financial subsidies. Under similar development conditions, the greater the investment and subsidies, the more attractive it is to enterprises. However, due to the relatively poor location conditions, the sub-developed regions need to increase construction and subsidies to enhance their attractiveness. The problem is that all of these require a certain amount of financial resources as a foundation, while the financial resources of the underdeveloped counties themselves are very limited, and they can only complete the infrastructure construction of the park by borrowing. The worse the development conditions, the higher the dependence on debt construction in order to enhance competitiveness.

The ultimate goal is to promote industrial development and fiscal and tax growth, improve debt repayment capacity and development capacity, and thus enter a virtuous circle of "debt construction-development-debt repayment capacity improvement". However, in underdeveloped counties, a large amount of resources have been invested in the construction of industrial parks, which has only brought about short-term growth in certain economic data such as regional GDP, and has not really improved local development capabilities. The specific performance is as follows:

First, the quality of the introduced enterprises is not high, and the tax revenue of industrial parks has basically not increased. The tax growth of the park is a direct manifestation of the improvement of local economic development capacity, but the tax growth of most of the underdeveloped counties we surveyed is not optimistic. According to the cadres of S City in northern Guangdong, in the past ten years, the city's tax revenue has been inseparable from three **: cigarette factories, steel factories and real estate. S City has always wanted to make the industrial park the fourth pillar of tax revenue, but the reality is that there is only input, not output. First, because in the early stage of the construction of the park, the local government will often return the tax to the enterprise in the form of rewards and subsidiesSecond, because the quality of enterprises entering the S city is not high, many enterprises do not really put into production according to the agreement after taking the land, even if a small number of enterprises are really put into production, many have a life span of less than 3 years, or move out after the expiration of preferential policies;Third, some enterprises use underdeveloped counties as production and assembly bases, and tax revenue flows into their headquarters in developed areas.

Second, economic growth is highly dependent on the real estate industry, and the problem of real estate development in county economic development is prominent. [4] This can be seen in the tax and fiscal structure. According to the statistics of the tax department of S County in eastern Guangdong, 50 of the tax revenue in the land is in real estate, and the financial dependence on land is as high as 4673%。Because the development of the real estate industry, at the same time the acquisition of public services, especially high-quality education and real estate purchase, can quickly leverage a large amount of funds, in the short term to help fiscal and tax growth, and alleviate the financial pressure of borrowing for the construction of the park. The difference is that the park industry is either because the quality of the introduced enterprises is not high, or because the industry has been cultivated for a long time, it is difficult to help fiscal and tax growth in the short term, and it is impossible to alleviate the pressure of debt repayment in the short term. This means that before the park industry is cultivated, it is difficult to get rid of the dependence on the real estate industry, and the problem is that the space for the development of the real estate industry is limited, and it is difficult to become a long-term dependence. The more underdeveloped the county, the more serious the problem. The final result is that the debt management behavior undertaken by the county ** for industrial transfer has not brought about the improvement of development capacity and debt repayment ability, but has led to the solidification of debt.

2) Differentiation expands.

The main starting point of the policy is to promote industrial transfer, so as to curb regional differentiation and achieve coordinated regional development. The starting point of this policy is good, but from the practice of undertaking industrial transfer at the county level, this measure not only did not inhibit differentiation, but brought about the unintended consequence of differentiation and expansion.

The reason for this problem is that county resources accumulate in the county, the urban-rural divide in the county widens, and the space for vulnerable groups to benefit from public resources decreases. In the words of the cadres, "industrial development is in the first place, and our infrastructure is in the first place", and the county seat is often a relatively ideal development area in the county. In the case of limited public resources, this will inevitably squeeze the resources available for public services at the village level. In practice, in order to develop real estate and carry out the construction of parks, the county will concentrate limited resources on improving the quality of public services in the county, and allocate high-quality educational resources and purchase houses, which has intensified the siphoning of high-quality teachers and students in the countryside by the county, and intensified the absorption of the county's real estate industry to farmers' families. This not only greatly increases the cost of access to public services such as education for farmers, resulting in a sharp decline in the quality of education for children from middle- and lower-class families who cannot afford to enter the county seats,[5] but also leads to a decline in the accumulation capacity of rural families, and a consequent decline in the ability to consume and resist risks in other aspects, which may widen the urban-rural divide and the class differentiation. This will further widen the divide between developed and underdeveloped counties, and even between the middle and lower classes of the entire country.

3) Weakening international competitiveness.

When our vision shifts from domestic to international, the negative consequences of underdeveloped counties participating in the competition to undertake industrial transfer are far more than that. Judging from the current international political and economic situation, China has entered a critical period of industrial upgrading, which is essentially a critical period of international competition - China's current round of industrial upgrading has an impact on the core interests of first-mover countries, and may encounter more severe economic, political and even military confrontations in the future. Therefore, enhancing the international competitiveness of industrial development is the main contradiction of China's current economic development and the premise for the realization of different regional interests. At this level, developed, sub-developed and underdeveloped regions prosper and lose together.

The participation of underdeveloped counties in industrial transfer and competition has intensified the problems of vicious competition, decentralization of industrial layout and waste of resources, which has had an impact on the efficient layout of China's industry and the enhancement of international competitiveness. As of December 31, 2020, there were 2,844 county-level administrative regions in China, of which 1,274 were within urban agglomerations, and the rest were agricultural production counties, ecological function zones and population outflow counties. [6] If every county participates in the competition to undertake industrial transferIndustrial parks are being built in every county(See Table 1).(Jiangxi, Hunan and other places have proposed that each county should focus on building an industrial park, and the situation of 3 or 5 industrial parks in nearly 10 counties and cities in the eastern, western and northern parts of Guangdong that we investigated is very common).It will inevitably exacerbate the problems of overly dispersed enterprise distribution, waste of resources and uncontrolled debt risks.

There is a deviation in the incentive mechanism to promote industrial transfer

Even if the above problems exist, even if the national level has been aware of the problems and has taken measures such as strengthening the overall planning of industrial transfer, it still has not been able to change the fact that underdeveloped counties actively participate in industrial transfer and undertake competition.

From a practical point of view, ** is the first action group to promote industrial transfer. The white-hot regional war has constituted a passive factor for local governments to participate in industrial transfer competitionThe ability to obtain control over the allocation of corresponding resources constitutes an active factor for them to participate in the competition. As a result, the incentive mechanism to promote industrial transfer has been skewed, and the real demand for industrial development has been ignored.

1) Regional wars are heating up.

County competition has long been an important driving force to promote industrial transfer, and the same is true today. In Guangdong Province, the provincial level focuses on several indicators of economic and social development to assess and rank the prefecture and city level with different economic development foundations, and the municipal level also adopts the same method to assess and rank the cities, counties and districts with different economic development conditions within their jurisdiction, including counties in underdeveloped areas.

Taking Y City in northern Guangdong as an example, on the basis of improving the requirements of various indicators, the city conducts a unified assessment and ranking of various cities, counties and districts around indicators such as gross regional product, industrial added value above designated size, fixed asset investment and local general public budget (see Table 2), and is included in the red and black list, and interviews are conducted with county-level ** who are continuously ranked lower, and the results are linked to promotion. In order to avoid backwardness, the city's county-level units, including the Y district, which has poor economic development conditions and undertakes the construction of key ecological function areas, also have to actively increase the construction of industrial transfer parks to achieve the growth of the above indicators. In order to avoid falling behind, some cities, counties, and districts have not only assigned the task of attracting investment to various departments and townships, but have even assigned the task of attracting investment to villages. Under the pressure of assessment, counties, towns and villages have to use all their resources and relationships to invest a lot of time to attract investment in order to win in the competition for industrial undertaking, regardless of whether the attracted enterprises are suitable or not, and whether there is room for local industrial transfer.

Compared with developed and sub-developed counties, underdeveloped counties are becoming more and more passive under the white-hot regional war, because the underdeveloped counties have weak financial autonomy, higher dependence on superiors, and lack autonomy at the development level, so they can only participate more actively in regional wars dominated by "unreasonable indicators".

2) Gain control over the allocation of resources.

The county-level debt management to enhance the competitiveness of the industry can not only enhance the possibility of the underdeveloped county winning in the regional war, but also enable the local government to gain a lot of control over the allocation of resources. Because only by actively participating in the competition can the county gain more control over the allocation of resources, including the resources brought by borrowing and the tilt of the project of the superior, and the more the lack of endogenous advantages in the industry, the greater the dependence on this.

The more control over resource allocation is gained by the county, the more room for rent-seeking of its power. The most direct is to obtain benefits through the exchange of interests between government and enterprises, including those enterprises and project contractors who mainly come for tax incentives. In addition, the space for the transfer of benefits from the county to the higher-level departments will also increase. This will bring two benefits: on the one hand, in the absence of obvious differences in industrial undertaking capacity and space, the ability to convey benefits has become an important factor in obtaining more project tilt and greater borrowing space;On the other hand, the huge benefits brought about by intensive resource allocation and power rent-seeking, as a strong incentive mechanism, gradually occupy a dominant position in county governance and become the key factor in determining the promotion of grassroots cadres. This problem is widespread, but because of the lack of endogenous resources and other incentive mechanisms in underdeveloped counties, local cadres are more dependent on obtaining control over resource allocation and benefit transfer to achieve promotion.

The focus on "comparative advantage" should also be on "comparative disadvantage".

The lack of accurate understanding of the ability of different regions, especially underdeveloped counties, to undertake industrial transfer is another important reason why underdeveloped counties blindly or actively or passively participate in industrial transfer. One of the main deviations is that more attention is paid to and emphasized the "comparative advantage" of underdeveloped counties, and based on this, there is too much imagination about the possible space for underdeveloped counties to undertake industrial transfer, but not enough attention is paid to "comparative disadvantage". On the whole, the "comparative disadvantages" of underdeveloped counties in terms of industrial transfer are mainly reflected in the following aspects:

First, traffic location. Transportation location is the primary condition for attracting enterprises. Most of the enterprises with transfer needs are looking for suitable industrial relocation places along the nearby high-speed rail stations. This is especially true for some companies expanding their production capacity. Because the convenience of transportation between the two places determines not only the cost of transportation, but also the convenience and cost of the mobility of managers. The development of underdeveloped areas is mainly limited by the transportation location, and the improvement of the transportation location can quickly bring about the inflow of enterprises.

The traffic location mentioned here is the national and provincial transportation planning, which belongs to the large transportation construction, which cannot be influenced and changed by the county level. The latter can only be used in the construction of small transportation within the region, or even mainly in the construction of transportation infrastructure in and around the park. The problem is that in the absence of improvement in the location of large transportation, the construction of small transportation within the region is almost meaningless. The construction of large-scale transportation needs to consider the overall and overall interests, and in the case of limited resources, it is also necessary to consider the benefits of infrastructure construction, and underdeveloped counties have obvious "comparative disadvantages".

Second, industrial ecology. The industrial ecology is the key factor that can keep the company. [9] It has two aspects. On the one hand, it is a supporting system for the production of enterprise products. Except for some resource-based enterprises, most of them have a supporting radius. Taking automobiles as an example, the first-level and second-level first-class suppliers of the vehicle factory should closely focus on their layout, and in the case of zero inventory, the first-class efficiency of the first-class business is calculated in minutes. The supporting radius is not only affected by the traffic location, but also by the degree of industrial agglomeration. The higher the degree of agglomeration of a particular industry, the lower the supporting costs, and the reduced costs based on this tend to easily cover the high land prices and the rising costs of labor.

After a long period of development and several rounds of industrial transfer, the basic pattern of industrial agglomeration in developed and sub-developed areas has been formed, and there will be no major changes in the short term. The stickiness and attractiveness of industrial clusters to enterprises make enterprises reluctant to move or only willing to move to the surrounding areas. However, promoting the transfer of industrial clusters, as an investment attraction idea to enhance competitiveness in most regions, is actually difficult to land. The number of industrial clusters is very limited, mainly manifested in the limited number of leading enterprises, such enterprises in the process of industrial transfer, there is a lot of room for choice, often give priority to developed and sub-developed counties.

On the other hand, there is a supporting system related to labor reproduction, including public services and commercial services. Young people are the main force in the current labor market. The second-generation migrant workers are different from the first-generation migrant workers, they will put forward high requirements for business services when they are unmarried, and even if the salary income of migrant workers in underdeveloped areas is similar to that of big cities and the cost of consumption is lower, they are more willing to go to big cities to work in order to experience the local business atmosphere and consumer culture. This is a rigid need for many young migrant workers. After getting married, especially for migrant workers with a certain level of skill and knowledge, they will further put forward higher requirements for public services, especially education, in the place where the enterprise is located.

In terms of the industrial ecology composed of business and public services, the developed regions have obvious advantages over the less developed regions。Because the cost of building an industrial ecology is extremely high, it is difficult to occur universally on the basis of a high concentration of industry, population and resources. Even in some sub-developed regions with a certain industrial base, there are many challenges. This is the case in the city we surveyed. In 2022, the city's registered population was 43380,000 people, with a permanent population of 52910,000 people, 50 kilometers away from the provincial capital, per capita GDP of 89,564 yuan, general public budget revenue of 2 billion yuan, there is a jade industry that gathers more than 200,000 people, in order to improve commercial services, the local introduction of a business body mainly in the first and second tier cities, including a large number of first-line brands, in order to introduce this business body, ** has also invested a lot of resources to improve the surrounding infrastructure. However, the current operation of this business body is in difficulty, and a large number of settled brands are ready to exit. In less developed areas with a limited population and a large exodus, the probability of success of commercial services is even smaller. In terms of public services, especially those that meet the needs of high-level talents, it is particularly difficult for underdeveloped areas where there are still difficulties in the construction of basic public services.

Third, in the period of industrial upgrading, the comparative disadvantage may be strengthened, rather than reduced, as is the case in both traditional and new industriesAt present, the traditional industry has entered the stage of industrial upgrading, with the main feature of small single fast reaction, the space for industrial transfer will also be reduced, or it should become an important consideration to promote industrial transfer: on the one hand, small single fast opposition to the collaborative production and flexible production capacity of different subjects in the industrial chain put forward high requirements, and on the basis of the existing industrial cluster development pattern, promote the coordinated development of different enterprises in the industrial chain, which will help to achieve this goal;On the other hand, for some large and medium-sized enterprises put forward a rigid demand for digital transformation, in this context, based on the needs of balanced regional development, to promote the industrial transfer of enterprises, will increase the burden and uncertainty of industrial upgrading.

Strategic emerging industries, this new track is regarded as an important opportunity for industrial transfer and development, many counties in underdeveloped areas will also take this as an important content and direction to undertake industrial transfer, the problem is that the new track threshold is high, and there are very few underdeveloped areas that can cross this threshold. In fact, the new track has also entered the stage of integration. Taking the lithium battery industry as an example, according to practitioners, the industry has experienced a relatively scattered and unclear stage, and then will gradually enter a clear standard, relatively centralized stage, in this process, the number of enterprises will gradually decrease, and gradually to several industrial clusters or production areas with greater competitive advantages.

Identification and analysis of the path of county development in underdeveloped areas

Industrial transfer is a systematic project, involving the specific research and judgment of the development characteristics of different industries, the coordination of different regions at different levels, the rational allocation of a series of elements such as land, which is full of many challenges. For a large country like China, the industrial system is so developed, and there are so many counties as the units that undertake industrial transfer and counties as the main body to promote industrial transfer, and the challenge of re-layout and reconstruction of industrial elements is far greater than that of other countries. At the same time, as a socialist country, China's industrial transfer also has some characteristics that are different from those of other countries:On the one hand, industrial transfer carries more goals, especially at the level of common prosperity;On the other hand, the country's macroeconomic regulation and control capacity is relatively stronger. The impact of the combination of the two is that the power, pressure and space for promoting industrial transfer for the goal of common prosperity are relatively large. This trend has been further strengthened with the deepening of economic agglomeration and the expansion of regional differentiation. This constitutes the advantage of China's promotion of industrial transfer, but at the same time, it also buries a greater possibility of deviating from the law of industrial development. At a time when international competition is fierce, we must be vigilant against the greater risks hidden in this trend.

However, this does not mean that there is no room for underdeveloped counties to promote balanced regional development, but there are better ways to directly participate in the competition of industrial transfer and undertaking through high debt, high risk, high cost and low return. On the one hand, by improving the overall planning of industrial transfer, that is, based on developed and sub-developed counties, mainly urban agglomerations and industrial belts that have begun to take shape, as the main area to solve the balance of accumulation and dispersion in the process of industrial transfer, so as to ensure that on the basis of not affecting industrial upgrading and the improvement of the external competitiveness of industrial development, regional coordinated development is taken into account. On the basis of the affinity between resource-led industrial transfer and some underdeveloped counties with good resource endowments, this kind of county is identified, and industrial transfer is promoted in combination with the needs of industrial development, so as to avoid the generalization of competition for industrial transfer. From a practical point of view, Guangdong, as an early implementation of industrial transfer, has also adjusted the original relatively decentralized industrial transfer ideas on the basis of learning from existing experience and lessons. In March 2023, the Guangdong Provincial Party Committee and the provincial government issued the "Several Measures on Promoting the Orderly Transfer of Industries and Promoting Regional Coordinated Development", emphasizing the need to support cities in eastern, western and northern Guangdong to practice the idea of "selecting the best among the good, making breakthroughs in key areas, and leading the city with parks" based on existing parks.

On the other hand, in addition to industrial transfer, it is a path with lower costs, higher benefits and stronger public nature by directly investing financial funds in public services in underdeveloped counties. From the cost side, the investment in promoting industrial transfer is much higher than the cost of promoting the equilibrium of public services. One of the main reasons is that it is much more difficult and more expensive to promote the flow of enterprises and support the development of enterprises than it is to allow teachers and financial resources to flow. From the perspective of income, the resource investment around industrial transfer will not necessarily bring the entry of enterprises, even if a small number of enterprises are introduced, it will not necessarily bring the development of enterprises, so it is difficult for the broad masses of people in underdeveloped counties to benefit from it, and even have to bear the negative consequences such as the rise in public service costs due to resource concentration. Direct investment in improving the quality of public services is likely to reduce the burden of education on most families in the region, improve the quality of education, and thus achieve family development.

Therefore, it is necessary to increase the investment in public service resources in underdeveloped counties under the condition of weakening the development responsibility of underdeveloped counties in light of the current situation of economic development. For developed and sub-developed counties, it is necessary to give them more space for development, give full play to the advantages of resource agglomeration, better promote industrial upgrading and transformation, and create more resource increments.

This article was originally published in the 6th issue of Culture in 2023, with the original title of "Industrial Transfer Trap in Underdeveloped Counties". The article represents the author's views only and is for readers' reference. Welcome to share**, please contact us***

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