Nobody really did. China does not have any kind of coherent regional policy, or, well, any kind of real economic policy.

The infamed communist 5 years plans barely mean anything for the real economy.

South China got ahead in manufacturing due to market economy reaching it first.

Shanghai got banks because Jiang Zemin lived there, and he wanted money like every proper communist.

Chongqing seen its development as the only inland China big city, and lack of any other alternative.

Beijing is now late to the party, and bureaucrats there basically ordered it to become another "center" through administrative fiat.