国家战略嵌入地方发展:对竞争型府际合作的解释

粤港澳大湾区建设上升为国家战略,将带来区域经济社会的发展和国家整体竞争力的提升。但过去,中央和地方调控关系放松后,地方政府间缺乏体制性的规则约束,竞争的客观存在使得自主协同与合作常流于形式。论文认为,随着粤港澳大湾区政策层级的提升,在央地互动过程和中央政府介入程度二维框架下,形成了国家战略嵌入的府际合作新模式;特征表现为,地方政府通过自主试验推进政策创新,中央政府介入后推动地方改革走向规划整合。国家战略对地方发展的政治嵌入,使得府际合作需考虑战略规划带来的要素作用,以及嵌入后形成的府际关系转变:(1)在理论要素上,形成了依托行政权威、制度规则和法律规范的强制约束,同时兼顾平台搭建、利益协调与政策激励的宏观引导;(2)嵌入是地方自主探索与顶层设计互动作用的关系样态;(3)地方合作经历了地方发展的自主竞争-地方政策的先行先试-国家战略的高位推动-国家方案的稳步出台四个状态,体现了国家战略嵌入对府际合作关系的根本性改变。论文的理论价值在于提出了国家战略嵌入的府际合作模式,剖析了竞争型地方发展转向合作的影响要素和演进过程。

National Strategy Embedded in Local Development: An Interpretation of Competitive Intergovernmental Cooperation

The Guangdong-Hong Kong-Macao Great Bay Area(GBA) is a national strategy meant to aid the development of China’s economy and societyand to make it more competitive. But,as in the past when the relationships between central and local governments were relaxed,there are no institutional rules governing the relationships between local governments. Competition among them has made coordination and cooperation more of a formality. This paper holds that,with the upgrading of policy levels,a new mode of national strategic embeddedness has been formed. In this paper,a two-dimensional framework is used to describe the interaction between the central and local governments and the degree of central government involvement. From a theoretical perspective,(1) the compulsory constraints which rely on administrative authority,institutional rules,and legal norms,have been formed through the macro guidance that allowed for platform building,interest coordination,and policy incentives;(2) Embeddedness is the relationship pattern of the interactions between local,independent explorations and top-level designs;and,(3) Local cooperation has become a mixture of Independent competition/try local policies first/National strategy/Implementation plan.