粤港澳大湾区跨界地区协同发展模式研究——以广佛为例
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摘要
推进城市群协同发展是国家在新时代的重要战略;粤港澳大湾区将担负代表国家参与全球竞争与合作的战略使命。如何强化跨界地区的协同发展成为粤港澳大湾区建设的重要议题。以多层级治理为理论视角,以国内跨界地区协同发展程度最高的广(州)佛(山)为研究地区,从宏观政策制度建构和微观合作项目实施切入,对广东省、广佛两市及所辖的区、镇街等不同层级政府在协同发展过程中的角色进行了分析,并进一步探究协同发展模式。研究发现,广佛两市构筑的"城市政府主导的合作模式"是推动跨界地区协同发展的一次有益尝试,但存在一定的脆弱性;区及镇街政府的合作渠道虽已搭建,但成效有限;市民缺乏参与的渠道;上级政府的有效介入有助于公益民生项目的协调实施。研究将有助于丰富关于区域治理的学术讨论,也能为粤港澳大湾区的建设提供参考。
In the new era, to promote the coordinated development of urban clusters is a national strategy, and the Guangdong-Hong KongMacao Great Bay Area is supposed to take on the mission of participating in global competition. Therefore, how to strengthen the coordinated development of cross-border region becomes a significant issue in the construction of the Great Bay Area. Taking Guangzhou-Foshan as a case, which is the cross-border region with the highest level of coordinated development at the national level, based on the theoretical perspective of multilevel governance, this paper investigates the roles of different levels of local governments in the process of cross-border region cooperation from dimensions of macro policy system construction and micro project, as well as further exploring the coordinated development pattern. It is found that, the "city government dominated cooperation mode" shaped by Guangzhou and Foshan is a useful attempt to promote the cross-border region cooperation but is still vulnerable and instable. And the communication platforms built between district and town governments are ineffective. Moreover, citizens are excluded from the process of crossborder region cooperation. It is also found that the effective intervention of the superior government is conducive to the coordinated implementation of public welfare and people's livelihood projects. The research will enrich the academic discussion on regional governance and provide reference for the construction of Guangdong-Hong Kong-Macao Greater Bay Area.
In the new era, to promote the coordinated development of urban clusters is a national strategy, and the Guangdong-Hong KongMacao Great Bay Area is supposed to take on the mission of participating in global competition. Therefore, how to strengthen the coordinated development of cross-border region becomes a significant issue in the construction of the Great Bay Area. Taking Guangzhou-Foshan as a case, which is the cross-border region with the highest level of coordinated development at the national level, based on the theoretical perspective of multilevel governance, this paper investigates the roles of different levels of local governments in the process of cross-border region cooperation from dimensions of macro policy system construction and micro project, as well as further exploring the coordinated development pattern. It is found that, the "city government dominated cooperation mode" shaped by Guangzhou and Foshan is a useful attempt to promote the cross-border region cooperation but is still vulnerable and instable. And the communication platforms built between district and town governments are ineffective. Moreover, citizens are excluded from the process of crossborder region cooperation. It is also found that the effective intervention of the superior government is conducive to the coordinated implementation of public welfare and people's livelihood projects. The research will enrich the academic discussion on regional governance and provide reference for the construction of Guangdong-Hong Kong-Macao Greater Bay Area.
引文
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2 SCOTT A J.Global City-Regions:Trends,Theory,Policy[M].Oxford:Oxford University Press,2001.
3 WU F.China’s Emergent City-Region Governance:ANew Form of State Spatial Selectivity Through StateOrchestrated Rescaling[J].International Journal of Urban and Regional Research,2016,40(6):1134-1151.
4魏宗财,陈婷婷,李郇,等.多层级治理视角下跨界地区合作模式探究--以广佛为例[J].地理科学,2016,36(9):1418-1425.WEI Zongcai,CHEN Tingting,LI Xun,et al.CrossBorder Region Cooperation Mode from the Perspective of Multi-Level Governance:A Case of Guangzhou-Foshan[J].Scientia Geographica Sinica,2016,36(9):1418-1425.
5魏宗财,陈婷婷,甄峰,等.对我国同城化规划实施的思考--以《广佛同城化发展规划》为例[J].城市规划学刊,2014(2):81-86.WEI Zongcai,CHEN Tingting,ZHEN Feng,et al.Reconsideration on the Implementation Thoughts on City Integration Planning in China:Case of GuangFo Integration Development Planning[J].Urban Planning Forum,2014(2):81-86.
6 RUGGIE J G.Territoriality and Beyond:Problematizing Modernity in International Relations[J].International Organization,1993,47(1):139-174.
7 OHMAE K.The End of the Nation State[M].New York:Free Press,1995.
8 ANSELL C.The Networked Polity:Regional Development in Western Europe[J].Governance,2000,13(2):279-291.
9 MARKS G,STEENBERGEN M R.European Integration and Political Conflict[M].Cambridge:Cambridge University Press,2004.
10 NEWMAN P.Changing Patterns of Regional Governance in the EU[J].Urban Studies,2000,37(6):895-909.
11 BLATTER J K.Debordering the World of States:Towards a Multi-Level System in Europe and a MultiPolity System in North America?Insights from Border Regions[J].European Journal of International Relations,2001,7(2):175-209.
12 YANG C.Multilevel Governance in the Cross-Boundary Region of Hong Kong-Pearl River Delta,China[J].Environment and Planning A,2005,37(12):2147-2168.
13武廷海.新时期中国区域空间规划体系展望[J].城市规划,2007,31(7):39-46.WU Tinghai.Perspective of China’s Regional Spatial Planning System in New Era[J].City Planning Review,2007,31(7):39-46.
14顾朝林.发展中国家城市管治研究及其对我国的启发[J].城市规划,2001,25(9):13-20.GU Chaolin.The Urban Governance in the Developing Countries and Its Implication to China[J].City Planning Review,2001,25(9):13-20.
15 LUO X L,SHEN J F.Why City-Region Planning does not Work Well in China:The Case of Suzhou-WuxiChangzhou[J].Cities,2008,25(4):207-217.
16 XU J,YEH A G O.Interjurisdictional Cooperation Through Bargaining:The Case of Guangzhou-Zhuhai Railway in the Pearl River Delta,China[J].The China Quarterly,2013(1):130-151.
17罗小龙,沈建法.长江三角洲城市合作模式及其理论框架分析[J].地理学报,2007,62(2):115-126.LUO Xiaolong,SHEN Jianfa.Models of Inter-City Cooperation and Its Theoretical Implications:An Empirical Study on the Yangtze River Delta[J].Acta Geographica Sinica,2007,62(2):115-126.
18张京祥,罗小龙,殷洁.长江三角洲多中心城市区域与多层次管治[J].国际城市规划,2008(1):65-69.ZHANG Jingxiang,LUO Xiaolong,YIN Jie.Polycentric Mega-City Regions and Multi-Level Governance of the Yangtze River Delta[J].Urban Planning International,2008(1):65-69.
19黄颖,周素红,钟谦.区域治理视角下《珠江三角洲地区改革发展规划纲要》的实施机制及启示[J].国际城市规划,2015(4):95-100.HUANG Ying,ZHOU Suhong,ZHONG Qian.A Study of the“Outlines for Reform and Development Planning of Pearl River Delta Region”from the Perspective of Regional Governance:Implementation Mechanism and Implication[J].Urban Planning International,2015(4):95-100.
20杨春.多中心跨境城市-区域的多层级管治--以大珠江三角洲为例[J].国际城市规划,2008(1):79-84.YANG Chun.Multi-Level Governance of the Polycentric Cross-Border City-Region:The Case of the Greater Pearl River Delta,China[J].Urban Planning International,2008(1):79-84.
21刘超群,李志刚,徐江,等.新时期珠三角“城市区域”重构的空间分析--以跨行政边界的基础设施建设为例[J].国际城市规划,2010(2):31-38.LIU Chaoqun,LI Zhigang,XU Jiang,et al.The Restructuring of the City-Regions in Transitional Pearl River Delta:A Case Study of the Construction of Inter-Jurisdictional Infrastructures[J].Urban Planning International,2010(2):31-38.
22许宁,吴玲玲.区域一体化与广佛都市圈产业体系的构建[J].城市观察,2009(1):126-135.XU Ning,WU Lingling.Regional Integration and Industrial Development in Guangzhou-Foshan Megalopolis[J].Urban Insight,2009(1):126-135.
23赵卓,黄蔼霞.广佛同城的产业协作现状与对策[J].现代管理科学,2013(1):88-90.ZHAO Zhuo,HUANG Aixia.Current Performance and Countermeasures of Industry Cooperation in Guang-Fo Integration[J].Modern Management Science,2013(1):88-90.
24于祥华.广佛同城化党政联席会议在广州召开更高层次推进广佛同城化[N/OL].佛山日报,2016-08-01[2017-01-02].http://www.fsonline.com.cn/p/169927.html.YU Xianghua.Guangzhou-Foshan Integration Joint Conference Held in Guangzhou Aiming to Promote the Further Integration[N/OL].Foshan Daily,2016-08-01[2017-01-02].http://www.fsonline.com.cn/p/169927.html.
25曾妮.专家:供水危机引发思考特大型城市须有第二水源[E B/O L].网易新闻,2 0 1 0-02-05[2017-01-02].http://news.163.com/10/0205/09/5UOFDEUM000120GU.html.ZENG Ni.Expert:Rethinking the Crisis of Water Supply,Megacity Must Have the Second Water Source[EB/OL].Netease News,2010-02-05[2017-01-02].http://news.163.com/10/0205/09/5UOFDEUM000120GU.html.
26 JESSOP B.Multilevel Governance and Multilevel Metagovernance.Changes in the EU as Integral Moments in the Transformation and Reorientation of Contemporary Statehood[M]//BACHE I,FLINDERS M.Multi-Level Governance.Oxford:Oxford University Press,2004:49-74.
2 SCOTT A J.Global City-Regions:Trends,Theory,Policy[M].Oxford:Oxford University Press,2001.
3 WU F.China’s Emergent City-Region Governance:ANew Form of State Spatial Selectivity Through StateOrchestrated Rescaling[J].International Journal of Urban and Regional Research,2016,40(6):1134-1151.
4魏宗财,陈婷婷,李郇,等.多层级治理视角下跨界地区合作模式探究--以广佛为例[J].地理科学,2016,36(9):1418-1425.WEI Zongcai,CHEN Tingting,LI Xun,et al.CrossBorder Region Cooperation Mode from the Perspective of Multi-Level Governance:A Case of Guangzhou-Foshan[J].Scientia Geographica Sinica,2016,36(9):1418-1425.
5魏宗财,陈婷婷,甄峰,等.对我国同城化规划实施的思考--以《广佛同城化发展规划》为例[J].城市规划学刊,2014(2):81-86.WEI Zongcai,CHEN Tingting,ZHEN Feng,et al.Reconsideration on the Implementation Thoughts on City Integration Planning in China:Case of GuangFo Integration Development Planning[J].Urban Planning Forum,2014(2):81-86.
6 RUGGIE J G.Territoriality and Beyond:Problematizing Modernity in International Relations[J].International Organization,1993,47(1):139-174.
7 OHMAE K.The End of the Nation State[M].New York:Free Press,1995.
8 ANSELL C.The Networked Polity:Regional Development in Western Europe[J].Governance,2000,13(2):279-291.
9 MARKS G,STEENBERGEN M R.European Integration and Political Conflict[M].Cambridge:Cambridge University Press,2004.
10 NEWMAN P.Changing Patterns of Regional Governance in the EU[J].Urban Studies,2000,37(6):895-909.
11 BLATTER J K.Debordering the World of States:Towards a Multi-Level System in Europe and a MultiPolity System in North America?Insights from Border Regions[J].European Journal of International Relations,2001,7(2):175-209.
12 YANG C.Multilevel Governance in the Cross-Boundary Region of Hong Kong-Pearl River Delta,China[J].Environment and Planning A,2005,37(12):2147-2168.
13武廷海.新时期中国区域空间规划体系展望[J].城市规划,2007,31(7):39-46.WU Tinghai.Perspective of China’s Regional Spatial Planning System in New Era[J].City Planning Review,2007,31(7):39-46.
14顾朝林.发展中国家城市管治研究及其对我国的启发[J].城市规划,2001,25(9):13-20.GU Chaolin.The Urban Governance in the Developing Countries and Its Implication to China[J].City Planning Review,2001,25(9):13-20.
15 LUO X L,SHEN J F.Why City-Region Planning does not Work Well in China:The Case of Suzhou-WuxiChangzhou[J].Cities,2008,25(4):207-217.
16 XU J,YEH A G O.Interjurisdictional Cooperation Through Bargaining:The Case of Guangzhou-Zhuhai Railway in the Pearl River Delta,China[J].The China Quarterly,2013(1):130-151.
17罗小龙,沈建法.长江三角洲城市合作模式及其理论框架分析[J].地理学报,2007,62(2):115-126.LUO Xiaolong,SHEN Jianfa.Models of Inter-City Cooperation and Its Theoretical Implications:An Empirical Study on the Yangtze River Delta[J].Acta Geographica Sinica,2007,62(2):115-126.
18张京祥,罗小龙,殷洁.长江三角洲多中心城市区域与多层次管治[J].国际城市规划,2008(1):65-69.ZHANG Jingxiang,LUO Xiaolong,YIN Jie.Polycentric Mega-City Regions and Multi-Level Governance of the Yangtze River Delta[J].Urban Planning International,2008(1):65-69.
19黄颖,周素红,钟谦.区域治理视角下《珠江三角洲地区改革发展规划纲要》的实施机制及启示[J].国际城市规划,2015(4):95-100.HUANG Ying,ZHOU Suhong,ZHONG Qian.A Study of the“Outlines for Reform and Development Planning of Pearl River Delta Region”from the Perspective of Regional Governance:Implementation Mechanism and Implication[J].Urban Planning International,2015(4):95-100.
20杨春.多中心跨境城市-区域的多层级管治--以大珠江三角洲为例[J].国际城市规划,2008(1):79-84.YANG Chun.Multi-Level Governance of the Polycentric Cross-Border City-Region:The Case of the Greater Pearl River Delta,China[J].Urban Planning International,2008(1):79-84.
21刘超群,李志刚,徐江,等.新时期珠三角“城市区域”重构的空间分析--以跨行政边界的基础设施建设为例[J].国际城市规划,2010(2):31-38.LIU Chaoqun,LI Zhigang,XU Jiang,et al.The Restructuring of the City-Regions in Transitional Pearl River Delta:A Case Study of the Construction of Inter-Jurisdictional Infrastructures[J].Urban Planning International,2010(2):31-38.
22许宁,吴玲玲.区域一体化与广佛都市圈产业体系的构建[J].城市观察,2009(1):126-135.XU Ning,WU Lingling.Regional Integration and Industrial Development in Guangzhou-Foshan Megalopolis[J].Urban Insight,2009(1):126-135.
23赵卓,黄蔼霞.广佛同城的产业协作现状与对策[J].现代管理科学,2013(1):88-90.ZHAO Zhuo,HUANG Aixia.Current Performance and Countermeasures of Industry Cooperation in Guang-Fo Integration[J].Modern Management Science,2013(1):88-90.
24于祥华.广佛同城化党政联席会议在广州召开更高层次推进广佛同城化[N/OL].佛山日报,2016-08-01[2017-01-02].http://www.fsonline.com.cn/p/169927.html.YU Xianghua.Guangzhou-Foshan Integration Joint Conference Held in Guangzhou Aiming to Promote the Further Integration[N/OL].Foshan Daily,2016-08-01[2017-01-02].http://www.fsonline.com.cn/p/169927.html.
25曾妮.专家:供水危机引发思考特大型城市须有第二水源[E B/O L].网易新闻,2 0 1 0-02-05[2017-01-02].http://news.163.com/10/0205/09/5UOFDEUM000120GU.html.ZENG Ni.Expert:Rethinking the Crisis of Water Supply,Megacity Must Have the Second Water Source[EB/OL].Netease News,2010-02-05[2017-01-02].http://news.163.com/10/0205/09/5UOFDEUM000120GU.html.
26 JESSOP B.Multilevel Governance and Multilevel Metagovernance.Changes in the EU as Integral Moments in the Transformation and Reorientation of Contemporary Statehood[M]//BACHE I,FLINDERS M.Multi-Level Governance.Oxford:Oxford University Press,2004:49-74.
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