in the constitution, and basically turns unofficial prefectures overnight into official levels endorsed in the constitution. This process took place very fast—most provinces now govern all or most of their counties through only prefecture-level cities. In other words, an extra level of government has been "inserted" into the administrative structure. Proponents of reform say that this twist in events undermines the entire administrative structure of China by "sneaking in" an extra level "out of nowhere". More levels, they argue, lead to more corruption, more government spending, more inefficiency and idleness, and greater distance between the grassroots and the government. In addition, they claim that this arrangement over-emphasizes prefecture capitals (now they can claim, nominally and legally, to "be" the entire prefecture), and they argue that this has given prefectures license to sap resources that would otherwise go directly to counties. This in turn accentuates regional conflicts and the rich-poor gap. Also, if provinces are shrunk as well (see the proposal above), then there is even less need left for any prefectures at all to exist—after all, they only exist because provinces are too large. (Autonomous prefectures, which are guaranteed in the constitution, are mostly exempted from such proposals.) Opponents of this change believe that it is unrealistic to expect any change to come to current provincial boundaries, and hence prefectures are here to stay, at least in the short term. Moreover, they claim that the sheer size of provinces (which, according to them, do not need to be shrunk) means that prefectures are needed as an intermediary level. Finally, they defend the establishment of prefecture-level cities by arguing that it helps in encouraging urbanization, and cooperative development of entire regions. Hainan and Chongqing, already mentioned above as apparent experiments in province shrinking, can also be seen as experiments in the abolishment of prefectures. Hainan has two prefecture-level cities, but those control only districts (i.e. their own urbanized area); all the counties of Hainan are under the direct charge of the province, with no prefecture-level intermediary. Chongqing, which is province-sized (despite its status as a municipality), has no intermediate prefecture-level subdivisions of any sort. In addition, the provinces of Zhejiang, Fujian, Hubei, and Henan have initiated a number of reforms, giving counties a wide range of rights currently held by prefectures. Increasing the size of counties and townships The abolishment of district public offices is part of this reform; originally set