喀一和鐵路(lu)沿線區域產(chan)業發展問題形成的(de)原因：

    1.工(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)經(jing)(jing)(jing)(jing)濟(ji)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)方式(shi)(shi)(shi)落后。喀(ka)一(yi)和(he)(he)鐵(tie)路(lu)沿(yan)線(xian)區(qu)(qu)(qu)域(yu)(yu)經(jing)(jing)(jing)(jing)濟(ji)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)模(mo)式(shi)(shi)(shi)體(ti)現著(zhu)以(yi)(yi)重化工(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)帶(dai)動(dong)國(guo)民(min)(min)經(jing)(jing)(jing)(jing)濟(ji)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)的(de)(de)(de)(de)主導取向，可概括為(wei)“資源依賴(lai)”型(xing)工(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)推(tui)(tui)動(dong)國(guo)民(min)(min)經(jing)(jing)(jing)(jing)濟(ji)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)模(mo)式(shi)(shi)(shi)。實際上(shang)，這(zhe)種發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)模(mo)式(shi)(shi)(shi)在(zai)(zai)沿(yan)線(xian)區(qu)(qu)(qu)域(yu)(yu)并沒有(you)(you)對國(guo)民(min)(min)經(jing)(jing)(jing)(jing)濟(ji)整(zheng)體(ti)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)起(qi)到(dao)重要的(de)(de)(de)(de)推(tui)(tui)動(dong)作用(yong)，沿(yan)線(xian)工(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)經(jing)(jing)(jing)(jing)濟(ji)也(ye)未取得好的(de)(de)(de)(de)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)結(jie)果。這(zhe)是(shi)因(yin)為(wei)照搬(ban)舊有(you)(you)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)模(mo)式(shi)(shi)(shi)，沒有(you)(you)深入理解東(dong)部模(mo)式(shi)(shi)(shi)產(chan)(chan)(chan)(chan)(chan)生(sheng)的(de)(de)(de)(de)時代條件(jian)，沒有(you)(you)分(fen)析經(jing)(jing)(jing)(jing)濟(ji)增長與(yu)社(she)會(hui)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)的(de)(de)(de)(de)非線(xian)性關系（以(yi)(yi)及在(zai)(zai)一(yi)定條件(jian)下可能產(chan)(chan)(chan)(chan)(chan)生(sheng)的(de)(de)(de)(de)矛盾(dun)關系），缺少對工(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)招(zhao)商(shang)項目如(ru)何融入本地文(wen)化、經(jing)(jing)(jing)(jing)濟(ji)和(he)(he)社(she)會(hui)環(huan)境的(de)(de)(de)(de)科(ke)學論證(zheng)。從(cong)喀(ka)一(yi)和(he)(he)鐵(tie)路(lu)沿(yan)線(xian)區(qu)(qu)(qu)域(yu)(yu)各縣(xian)域(yu)(yu)單位第三(san)產(chan)(chan)(chan)(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)產(chan)(chan)(chan)(chan)(chan)值大于第二(er)產(chan)(chan)(chan)(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)，以(yi)(yi)及沿(yan)線(xian)區(qu)(qu)(qu)域(yu)(yu)中心(xin)城(cheng)(cheng)市和(he)(he)第三(san)產(chan)(chan)(chan)(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)的(de)(de)(de)(de)發(fa)(fa)(fa)(fa)達(da)程度可以(yi)(yi)推(tui)(tui)斷(duan)，沿(yan)線(xian)區(qu)(qu)(qu)域(yu)(yu)國(guo)民(min)(min)經(jing)(jing)(jing)(jing)濟(ji)的(de)(de)(de)(de)全面平穩持(chi)續發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)是(shi)這(zhe)一(yi)區(qu)(qu)(qu)域(yu)(yu)城(cheng)(cheng)鎮(zhen)(zhen)基礎(chu)建(jian)設和(he)(he)服務、農業(ye)(ye)(ye)(ye)(ye)(ye)(ye)產(chan)(chan)(chan)(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)、文(wen)化商(shang)貿旅(lv)游(you)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)與(yu)工(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)產(chan)(chan)(chan)(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)共同協調作用(yong)的(de)(de)(de)(de)結(jie)果。沿(yan)線(xian)區(qu)(qu)(qu)域(yu)(yu)“資源依賴(lai)”型(xing)工(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)是(shi)難(nan)以(yi)(yi)擔當起(qi)推(tui)(tui)動(dong)國(guo)民(min)(min)經(jing)(jing)(jing)(jing)濟(ji)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)重任的(de)(de)(de)(de)，而城(cheng)(cheng)鎮(zhen)(zhen)經(jing)(jing)(jing)(jing)濟(ji)的(de)(de)(de)(de)積極作用(yong)恰好又在(zai)(zai)此時不(bu)斷(duan)顯現，這(zhe)一(yi)切均反映出欠發(fa)(fa)(fa)(fa)達(da)區(qu)(qu)(qu)域(yu)(yu)經(jing)(jing)(jing)(jing)濟(ji)運(yun)行(xing)的(de)(de)(de)(de)市場規律性特征。客觀(guan)現實要求(qiu)我們切不(bu)可違背經(jing)(jing)(jing)(jing)濟(ji)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)規律而盲目行(xing)事。中共中央(yang)十七(qi)屆五中全會(hui)所確定的(de)(de)(de)(de)“十二(er)五”規劃(hua)，其著(zhu)力點放在(zai)(zai)了(le)社(she)會(hui)民(min)(min)生(sheng)事業(ye)(ye)(ye)(ye)(ye)(ye)(ye)改善、文(wen)化產(chan)(chan)(chan)(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)、城(cheng)(cheng)鎮(zhen)(zhen)基礎(chu)建(jian)設和(he)(he)消費(fei)型(xing)社(she)會(hui)的(de)(de)(de)(de)建(jian)立等方面，這(zhe)對于處在(zai)(zai)欠發(fa)(fa)(fa)(fa)達(da)區(qu)(qu)(qu)域(yu)(yu)的(de)(de)(de)(de)決策者們積極理清(qing)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)思路(lu)，順應和(he)(he)接受國(guo)家(jia)政策支持(chi)具有(you)(you)重要的(de)(de)(de)(de)現實指(zhi)導意(yi)義。因(yin)此，沿(yan)線(xian)區(qu)(qu)(qu)域(yu)(yu)工(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)的(de)(de)(de)(de)發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)應與(yu)商(shang)貿文(wen)化旅(lv)游(you)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)配(pei)合，推(tui)(tui)動(dong)城(cheng)(cheng)鎮(zhen)(zhen)化發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)，從(cong)而帶(dai)動(dong)農業(ye)(ye)(ye)(ye)(ye)(ye)(ye)產(chan)(chan)(chan)(chan)(chan)業(ye)(ye)(ye)(ye)(ye)(ye)(ye)化發(fa)(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)躍(yue)上(shang)新的(de)(de)(de)(de)臺(tai)階。

    2.工(gong)(gong)(gong)業與財(cai)政增(zeng)收(shou)沿用舊有(you)路徑。喀(ka)一(yi)和鐵路沿線區域(yu)(yu)屬典型的欠發(fa)達(da)區域(yu)(yu)，而欠發(fa)達(da)區域(yu)(yu)最(zui)突出(chu)(chu)的發(fa)展劣勢就是(shi)財(cai)政收(shou)入(ru)(ru)困乏(fa)。靠工(gong)(gong)(gong)業發(fa)展創造地方財(cai)政收(shou)入(ru)(ru)，并以此滿足區域(yu)(yu)內各項事業的開支與需求一(yi)直(zhi)是(shi)各級政府(fu)推崇的財(cai)政創收(shou)途徑，而從喀(ka)一(yi)和鐵路沿線區域(yu)(yu)工(gong)(gong)(gong)業發(fa)展現(xian)狀中并沒有(you)看到(dao)沿線區域(yu)(yu)通(tong)過(guo)工(gong)(gong)(gong)業增(zeng)長推動(dong)國民(min)經濟發(fa)展創造出(chu)(chu)更(geng)多的財(cai)政收(shou)入(ru)(ru)，反而是(shi)第(di)三產業與第(di)一(yi)產業加總成(cheng)為創造地方財(cai)政收(shou)入(ru)(ru)的主(zhu)力。如果算上地方財(cai)政支出(chu)(chu)給工(gong)(gong)(gong)業發(fa)展的補貼(tie)（工(gong)(gong)(gong)業園區建設、招商優(you)惠），有(you)些工(gong)(gong)(gong)業發(fa)展落后的縣(xian)域(yu)(yu)單位多年來(lai)工(gong)(gong)(gong)業對財(cai)政收(shou)入(ru)(ru)的貢獻呈負增(zeng)長趨勢。所以，單純依靠工(gong)(gong)(gong)業項目創造縣(xian)域(yu)(yu)財(cai)政收(shou)入(ru)(ru)的可(ke)能性微乎其(qi)微。

    正(zheng)如(ru)我國(guo)經(jing)濟學家張培剛所下定義，“工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)”是(shi)“一系列(lie)基要(yao)(yao)生(sheng)產(chan)函(han)數(shu)連續發(fa)(fa)(fa)生(sheng)變化(hua)(hua)(hua)(hua)(hua)的(de)(de)(de)(de)過程，這種(zhong)(zhong)(zhong)變化(hua)(hua)(hua)(hua)(hua)可能最先發(fa)(fa)(fa)生(sheng)于(yu)某(mou)(mou)一單位的(de)(de)(de)(de)生(sheng)產(chan)函(han)數(shu)，然(ran)后再以(yi)一種(zhong)(zhong)(zhong)支(zhi)配的(de)(de)(de)(de)形(xing)態形(xing)成一種(zhong)(zhong)(zhong)社(she)(she)會(hui)的(de)(de)(de)(de)生(sheng)產(chan)函(han)數(shu)遍及于(yu)整(zheng)個社(she)(she)會(hui)”；他(ta)又(you)指(zhi)(zhi)出(chu)“農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)國(guo)工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)歷(li)史(shi)轉(zhuan)(zhuan)變的(de)(de)(de)(de)基本(ben)標志就(jiu)在(zai)(zai)于(yu)由消費品工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)占(zhan)優(you)轉(zhuan)(zhuan)變為(wei)(wei)資本(ben)品占(zhan)優(you)。這種(zhong)(zhong)(zhong)轉(zhuan)(zhuan)變是(shi)逐(zhu)漸達(da)到(dao)的(de)(de)(de)(de)。”“不(bu)僅包括工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)本(ben)身的(de)(de)(de)(de)機械化(hua)(hua)(hua)(hua)(hua)和現(xian)(xian)(xian)代(dai)化(hua)(hua)(hua)(hua)(hua)，而且也(ye)包括農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)的(de)(de)(de)(de)機械化(hua)(hua)(hua)(hua)(hua)和現(xian)(xian)(xian)代(dai)化(hua)(hua)(hua)(hua)(hua)”。這個定義跳出(chu)了把工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)局(ju)限(xian)(xian)于(yu)工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)的(de)(de)(de)(de)狹隘(ai)圈子(zi)，把其他(ta)產(chan)業(ye)(ye)(ye)(ye)(ye)(ye)（如(ru)農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)）也(ye)納(na)人工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)的(de)(de)(de)(de)視(shi)野，工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)不(bu)僅包括傳統工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)的(de)(de)(de)(de)現(xian)(xian)(xian)代(dai)化(hua)(hua)(hua)(hua)(hua)，還(huan)包括農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)的(de)(de)(de)(de)現(xian)(xian)(xian)代(dai)化(hua)(hua)(hua)(hua)(hua)，從更高層次上(shang)開辟了工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)理論(lun)(lun)研究(jiu)的(de)(de)(de)(de)新思路(lu)。顯然(ran)，在(zai)(zai)我們實(shi)際(ji)工(gong)(gong)(gong)(gong)(gong)作中提出(chu)的(de)(de)(de)(de)僅依靠重工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)項(xiang)目發(fa)(fa)(fa)展(zhan)經(jing)濟的(de)(de)(de)(de)思路(lu)是(shi)簡單套用工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)理論(lun)(lun)，不(bu)論(lun)(lun)在(zai)(zai)理論(lun)(lun)上(shang)還(huan)是(shi)社(she)(she)會(hui)實(shi)踐上(shang)均有失偏頗。依照工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)發(fa)(fa)(fa)展(zhan)階段(duan)理論(lun)(lun)分(fen)析(xi)，欠(qian)發(fa)(fa)(fa)達(da)區(qu)域(yu)(yu)(yu)處(chu)于(yu)工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)發(fa)(fa)(fa)展(zhan)階段(duan)，其特(te)征主要(yao)(yao)表現(xian)(xian)(xian)為(wei)(wei)城鎮第(di)三(san)產(chan)業(ye)(ye)(ye)(ye)(ye)(ye)相對超前發(fa)(fa)(fa)展(zhan)。喀一和鐵(tie)路(lu)沿線區(qu)域(yu)(yu)(yu)的(de)(de)(de)(de)發(fa)(fa)(fa)展(zhan)實(shi)際(ji)也(ye)印證如(ru)此。在(zai)(zai)不(bu)具備發(fa)(fa)(fa)展(zhan)工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)項(xiang)目的(de)(de)(de)(de)沿線某(mou)(mou)些區(qu)域(yu)(yu)(yu)，切不(bu)應以(yi)某(mou)(mou)些工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)項(xiang)目的(de)(de)(de)(de)落實(shi)就(jiu)指(zhi)(zhi)望實(shi)現(xian)(xian)(xian)本(ben)區(qu)域(yu)(yu)(yu)工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)的(de)(de)(de)(de)跨越，這實(shi)際(ji)是(shi)對工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)理論(lun)(lun)的(de)(de)(de)(de)曲(qu)解(jie)。欠(qian)發(fa)(fa)(fa)達(da)區(qu)域(yu)(yu)(yu)更應遵循工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)化(hua)(hua)(hua)(hua)(hua)發(fa)(fa)(fa)展(zhan)的(de)(de)(de)(de)階段(duan)規律，要(yao)(yao)因地制宜地落實(shi)安(an)排(pai)與(yu)城鎮服務(wu)業(ye)(ye)(ye)(ye)(ye)(ye)、農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)、文(wen)化(hua)(hua)(hua)(hua)(hua)旅游等配套發(fa)(fa)(fa)展(zhan)的(de)(de)(de)(de)工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)項(xiang)目。就(jiu)此也(ye)可以(yi)認為(wei)(wei)，靠地方財政(zheng)有限(xian)(xian)的(de)(de)(de)(de)補(bu)貼支(zhi)撐欠(qian)發(fa)(fa)(fa)達(da)區(qu)域(yu)(yu)(yu)重工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)是(shi)不(bu)可持(chi)續的(de)(de)(de)(de)。現(xian)(xian)(xian)階段(duan)喀一和鐵(tie)路(lu)沿線區(qu)域(yu)(yu)(yu)更應把有限(xian)(xian)的(de)(de)(de)(de)財力(li)用于(yu)推進城鎮經(jing)濟、第(di)三(san)產(chan)業(ye)(ye)(ye)(ye)(ye)(ye)和涉農(nong)工(gong)(gong)(gong)(gong)(gong)業(ye)(ye)(ye)(ye)(ye)(ye)項(xiang)目上(shang)。

    3.工業(ye)發展戰略體系不(bu)合理。喀(ka)一和鐵路沿線(xian)區域所有縣域單位均顯示第三(san)產業(ye)對地方(fang)(fang)財政貢(gong)獻最高，工業(ye)貢(gong)獻較弱(ruo)。這表(biao)明(ming)縣域經濟發展不(bu)能以地方(fang)(fang)工業(ye)擔當(dang)主(zhu)力。

    一(yi)直以(yi)來，依(yi)靠工(gong)(gong)業發(fa)展地方經濟已成為各(ge)地行(xing)政領導(dao)的(de)思維定(ding)勢，而客觀現實總是(shi)事與(yu)(yu)愿違，如喀(ka)一(yi)和鐵路沿線區域(yu)(yu)財政與(yu)(yu)地方工(gong)(gong)業，縣(xian)(xian)域(yu)(yu)工(gong)(gong)業幾乎成為地方財政的(de)負(fu)擔。由于新(xin)疆綠(lv)洲經濟形態的(de)基本性質決定(ding)了縣(xian)(xian)域(yu)(yu)工(gong)(gong)業因環(huan)境承載力不足而難(nan)以(yi)自我(wo)實現本縣(xian)(xian)域(yu)(yu)工(gong)(gong)業體系建設(she)，因此，各(ge)縣(xian)(xian)只能形成孤立的(de)工(gong)(gong)業項(xiang)目，其輻射作用(yong)有限(xian)，導(dao)致盈(ying)利能力不足；加之各(ge)縣(xian)(xian)產業同質化(hua)嚴重(zhong)，很容易形成利潤(run)平均化(hua)，造成各(ge)工(gong)(gong)業項(xiang)目向本縣(xian)(xian)財政上(shang)繳收入下降，甚(shen)至出(chu)現虧損。

    從(cong)戰(zhan)略(lve)(lve)層面上講，喀一(yi)和鐵路沿(yan)線區(qu)域及更大范圍——南疆三地州更需要國家工業(ye)體系建設的戰(zhan)略(lve)(lve)布(bu)局在本區(qu)域的落實安排，盡(jin)快改變新疆區(qu)域內非均(jun)衡發展(zhan)的戰(zhan)略(lve)(lve)布(bu)局，有效(xiao)推進欠發達區(qu)域的經濟(ji)和社會發展(zhan)。

    4.地(di)(di)方(fang)工業(ye)體(ti)系依(yi)托(tuo)基礎薄弱。在新疆城市體(ti)系架構(gou)中，喀一和鐵路沿線區域(yu)具備(bei)產(chan)業(ye)依(yi)托(tuo)的城鎮(zhen)(zhen)只(zhi)有阿圖什(shen)市、喀什(shen)市、莎車(che)縣(xian)(xian)及和田市。目(mu)前，如何更好地(di)(di)發(fa)揮這(zhe)些中心城鎮(zhen)(zhen)現代服務功能(neng)，并(bing)以(yi)此(ci)吸引更多(duo)高新技術產(chan)業(ye)（如農產(chan)品加工中生(sheng)物技術應用、高技術裝(zhuang)備(bei)制造(zao)業(ye)）配(pei)套帶動城鎮(zhen)(zhen)經濟(ji)發(fa)展，以(yi)及逐步(bu)實現該區域(yu)產(chan)業(ye)升級、結(jie)構(gou)優化，仍然需要(yao)我們做出不懈的調整和總體(ti)謀劃(hua)。除資(zi)源(yuan)類加工業(ye)就近安排外，喀一和鐵路沿線區域(yu)地(di)(di)方(fang)工業(ye)體(ti)系架構(gou)和安排應更多(duo)考慮發(fa)揮區域(yu)中心城鎮(zhen)(zhen)的優勢作用，依(yi)托(tuo)城鎮(zhen)(zhen)相對集中安排低污染、環境承載力允許的加工業(ye)，并(bing)從(cong)制度創新上解決(jue)邊(bian)遠(yuan)縣(xian)(xian)域(yu)單位利益分配(pei)問題(ti)。