Why doesn't Zhoukou Rong Hui belong to Zhoukou?

It should belong to Zhoukou City, just across the road from Shangshui County, which is quite different from the original administrative division. Zhoukou used to belong to an administrative region of Shangshui County, but later it became a city, which is closely connected with Shangshui County, with Zhoukou in the north and Shangshui in the south. Administratively, it should not be under the jurisdiction of commercial water affairs.