地方政府干预与农业产业集群发展:基于中国生姜产业集群的比较研究

农业产业集群被视为提升农业竞争力、推动农村转型的重要引擎。然而，一个关键问题仍有待深入探讨：地方政府应如何有效干预，才能切实推动产业集群的形成与持续升级？

Agro-based clusters (ACs) are widely regarded as an important engine for enhancing agricultural competitiveness and promoting rural transformation. However, a critical question remains: how should local governments intervene to foster successful cluster trajectories?

本文以中国生姜产业为研究对象，采用多案例比较与长时段面板数据分析相结合的方法，系统考察地方政府干预与生姜集群发展轨迹之间的关联。研究选取安丘、昌邑、丰润和抚宁四个初始条件相似但发展路径迥异的生姜种植县，通过整合县级统计资料、地方志、遥感影像与企业注册数据，构建了覆盖1980—2024年的面板数据集。在此基础上，本文构建了一套多维指标体系，将农业集群的演进划分为“起步”、“快速增长”、“平稳发展”与“转型”四个阶段，并以此为框架对上述四个案例的演进路径展开追踪与比较分析。

Using the ginger industry in China as a case study, this paper employs a comparative, multi-county, multi-decade framework to examine how local government interventions relate to the formation and upgrading of ACs. We utilize an original panel dataset (1980–2024) integrating administrative records, county gazetteers, remote sensing imagery, and business registration data for four ginger-producing counties—Anqiu, Changyi, Fengrun, and Funing—which share similar initial conditions but follow distinct development paths. A key innovation is our metrics-based stage classification system that organizes cluster evolution into four stylized stages: emergence, expansion, consolidation, and transformation. This framework enables a systematic tracing and comparison of the evolutionary paths across the four cases.

本文将地方政府干预归纳为生产支持、市场基础设施投资及市场环境优化三大类。基于对四十余年政策文本的系统编码，并结合各产区的集群演化路径，研究发现：农业产业集群的起步虽以自然禀赋为基础，但其后续发展与升级则与地方政府干预的时序、组合及协调性密切相关。具体而言，在起步阶段，市场基础设施投资有助于降低小农户的销售风险，激励商业化生产；在快速增长阶段，生产支持政策可提升产量与品质，推动规模扩张；进入平稳发展阶段后，市场环境优化政策则成为向高附加值环节转型的关键。

We categorize local interventions into three major types: production support, market infrastructure investment, and market environment refinement. Based on a systematic coding of policy texts spanning over four decades, our study reveals that while initial cluster emergence reflects agro-climatic suitability, subsequent development and upgrading correspond to the timing, sequencing, and coordination of interventions. Specifically, investments in market infrastructure during the emergence stage reduce transaction frictions and sales risks for smallholders; production support during the expansion stage enhances yields and quality to drive scale growth; and market environment refinements during the consolidation and transformation stages facilitate integration into high-value domestic and export networks.

值得注意的是，本文发现先发优势在集群发展中具有持久影响。作为早期进入者，安丘和昌邑不仅形成了稳定的市场功能定位，也锁定了各自的结构性发展方向：安丘因早期向出口与加工倾斜，发展为高附加值、创新驱动型集群；昌邑则凭借对市场基础设施的持续投入，逐步确立为国内生姜集散中心。相较之下，作为后发县域，丰润和抚宁即便在后期加大政策投入，仍难以突破既有市场结构，呈现出明显的路径依赖与功能锁定效应。

Notably, we highlight the importance of first-mover advantages and path-dependent trajectories in cluster development. Early entrants such as Anqiu and Changyi established dominant market positions and assumed distinct functional roles: Anqiu’s early emphasis on market environment upgrading gave rise to a high-value, export-oriented cluster, while Changyi’s sustained investment in physical infrastructure consolidated its role as a national distribution hub. By contrast, latecomers such as Fengrun and Funing struggled to challenge these entrenched market structures despite intensified policy efforts in later periods, reflecting significant functional lock-in effects.

为验证上述定性发现，本文进一步采用面板回归模型，检验不同干预类型与集群发展之间的相关关系。结果显示，三类干预均与种植面积占比及价值链密度呈显著正相关，且其效应强度呈现明显的阶段性差异：市场基础设施投资在早期最为关键，生产支持在中期效应突出，市场环境政策则在后期持续发挥作用。在替换权重方案并控制气候变量后，上述结果依然稳健，表明干预的“时序适配性”是影响集群演化的重要机制。

To validate these qualitative findings, we employ a panel regression approach to examine the relationship between local policy implementation and changes in cultivation scale and value chain thickness. Results show that all three categories of intervention are significantly and positively associated with cluster outcomes, with their effect sizes varying by stage: market infrastructure investment is most critical early on, production support is significant during the middle period, and market environment policies play a sustained role in later stages. These results remain robust across alternative weighting schemes and after controlling for climatic variables, suggesting that a well-sequenced policy mix across all three domains serves as a key mechanism driving cluster evolution.

在政策层面，本文的启示在于：地方政府应摒弃“一刀切”的干预模式，根据农业产业集群所处的发展阶段，制定相应的政策组合。起步阶段应优先投资于降低交易成本的市场基础设施；快速增长阶段需强化生产性服务与技术支持；平稳发展阶段则应聚焦品牌建设、质量认证等制度环境优化。与此同时，后发地区应警惕“模仿式发展”陷阱，充分挖掘自身比较优势，走差异化发展道路。

The policy implications suggest that local governments should move beyond "one-size-fits-all" approaches and instead design policy mixes tailored to the specific development stage of the AC. Priority should be given to market infrastructure that reduces transaction costs during emergence, followed by production services and technical support during expansion, and institutional refinements such as branding and quality certification during consolidation. Furthermore, latecomer regions should avoid the trap of "imitative development" and instead leverage their own comparative advantages to pursue differentiated upgrading pathways.