科学合理地规划布局公共服务设施，增强基本公共服务的均衡性和可及性，对于促进社会公平正义和增进民生福祉具有重要意义。然而，当前公共服务设施空间分布两极分化的现象严峻且普遍，2022年全国79.37%的市辖区存在空间布局不均等的问题。这表明，既要提升公共服务地区间均等化水平，还要重视地区内空间分布的均等化状况。本文将公共服务地区内均等化称之为空间均等化，它本质上反映了公共服务资源在地理空间上的分布。梳理既有文献发现，公共管理学科长期关注公共服务地区间均等化，地理规划学科则聚焦个别地区公服设施的空间分布。其中，空间规划作为调控城市空间资源的重要公共政策，其政策属性和作用路径没有得到足够重视。基于此，本文将结合公共管理和地理规划的学科优势，回答两个核心问题：（1）公共服务空间均等化如何界定和测度？（2）空间规划能否以及如何促进公共服务空间均等化？本文构建了一套基于POI数据的地理时空数据库，以医疗卫生服务为例，在更细尺度（居民点）、更大范围（全国市辖区）、更长周期（2012-2022）上测度了公共服务空间均等化水平，并基于混合研究设计开展逻辑相继的四个实证工作：第一，精准测度和描述公共服务空间均等化水平，包括“均距”和“均量”两个维度。结果表明，全国大部分市辖区空间均等化水平偏低，主要体现在“均距”维度，地区间差异较大。第二，基于一个探索性案例研究，提炼了空间规划的两个政策属性——“规划目标一致性”和“规划执行连续性”，构建了基于空间规划影响逻辑的理论框架。第三，使用多时点双重差分计量模型，实证估计了规划目标一致性与空间均等化的因果效应。结果表明，“多规合一”试点带来的规划目标一致性显著提升了空间均等化，主要通过优化城市空间形态和提升土地利用效率两方面发挥作用。第四，基于空间规划变动数据，使用双向固定效应模型检验了规划执行连续性对空间均等化的影响。结果表明，空间均等化与规划变动次数呈显著的“倒U型”关系，规划执行不连续显著降低了空间均等化。本文的贡献体现在：（1）理论层面。提炼了空间规划的两个政策属性，提出了公共服务均等化的空间规划影响逻辑，有利于促进公共管理与地理规划的学科对话和知识共享。（2）方法层面。利用地理时空大数据实现了空间均等化的精准测度，利用规划变动数据创新地直接测度政策执行连续性。（3）实践层面。为公共服务精准布局提供关键数据支撑，为完善国土空间规划体系提供政策背书。
Scientific and rational planning and distribution of public service facilities and enhancing the balance and accessibility of basic public services are of great significance to promoting social equity and justice and improving people's well-being. However, the current polarization of the spatial distribution of public service facilities is severe and widespread, and 79.37% of the municipal districts in 2022 have the problem of unequal spatial layout. This shows that we should not only improve the level of equalization of public services among regions, but also pay attention to the equalization of spatial distribution within regions. In this paper, the equalization of public service areas is called spatial equalization, which essentially reflects the distribution of public service resources in geographical space. Combing through the existing literature, it is found that the discipline of public administration has long been concerned about the equalization of public service areas, while the discipline of geographical planning focuses on the spatial distribution of public service facilities in individual areas. Among them, spatial planning, as an important public policy for regulating urban spatial resources, has not been paid enough attention to its policy attribute and function path. Based on this, this paper will combine the discipline advantages of public management and geographical planning to answer two core questions: (1) How to define and measure the equalization of public service space? (2) Can and how spatial planning promotes the equalization of public service space?This paper constructs a set of geographical spatiotemporal database based on POI data, takes medical and health services as an example, measures the level of public service spatial equality on a smaller scale (residential areas), a larger scope (national municipal districts), and a longer period (2012-2022), and carries out four logical empirical works based on the mixed research design:First, accurately measure and describe the equalization level of public service space, including the two dimensions of "mean distance" and "mean volume". The results show that the spatial equalization level of most municipal districts in China is low, which is mainly reflected in the "average distance" dimension, and the difference between regions is large. Secondly, based on an exploratory case study, two policy attributes of spatial planning - "consistency of planning objectives" and "continuity of planning execution" - are refined, and a theoretical framework based on the impact logic of spatial planning is constructed. Thirdly, the causal effect of planning goal consistency and spatial equalization is estimated empirically by using the multi-time-point differential econometric model. The results show that the consistency of planning objectives brought by the "multi-planning integration" pilot significantly improves the spatial equalization, mainly through the optimization of urban spatial form and the improvement of land use efficiency. Fourthly, based on spatial planning change data, the bidirectional fixed effect model is used to examine the impact of planning continuity on spatial equalization. The results show that the spatial equalization has an "inverted U-shaped" relationship with the number of planning changes, and the discontinuous implementation of planning significantly reduces the spatial equalization.The contribution of this paper is reflected in: (1) theoretical level. Two policy attributes of spatial planning are refined, and the spatial planning influence logic of equalization of public services is put forward, which is conducive to promoting discipline dialogue and knowledge sharing between public management and geographic planning. (2) Method level. The spatial and temporal big data is used to achieve accurate measurement of spatial equalization, and the planning change data is used to directly measure the continuity of policy implementation innovatively. (3) Practical level. It will provide key data support for the accurate layout of public services and provide policy endorsement for the improvement of the territorial spatial planning system.
