从“单一边界”到“多重边界”的区域公共事务治理——基于对长三角大气污染防治合作的观察

Regional Governance:Beyond the Limits of Single Administrative Boundary ——A Case Study on Interlocal Collaboration in Air Pollution Control in the Yangtze River Delta

打破"一亩三分地"的固定思维模式,是区域公共事务走向协同治理的基础。文章从"一亩三分地"的概念出发,提出目前区域治理是基于"单一行政边界"下的地方竞争"锦标赛"激励机制,难以满足公共事务日益增长的复杂性和跨界性的治理要求。根据制度性集体行动框架,地方政府间公共事务的合作是交易成本和契约风险下的理性选择行动,并在此基础上形成不同形态的网络。这些网络会受到地理相邻、政策一致性以及行政管辖关系的影响,实践中体现为地理边界、功能边界和行政边界等多重边界的共同或交叉影响。文章以长三角城市群大气污染跨域府际合作治理为观察对象,分析了不同边界机制嵌套关系的作用。在此基础上引出对区域治理变革问题的思考,即区域治理如何从单一行政边界治理走向多重边界治理,其中边界的"形成、范围、强弱、弹性、演化、耦合"等问题值得深入研究。

Breaking the fixed thinking mode of"administrative jurisdiction boundary"is the basis for regional public affairs to move towards collaborative governance.Current regional governance is based on the incentive mechanism of local competition tournaments under a single"administrative boundary",which cannot match the complexity and trans-boundary nature of public affairs governance.Based on the framework of institutional collective action,the article points out that cooperation in public affairs between local governments is a rational choice action under transaction costs and contract risks,and forms different kinds of networks on this basis.These networks will be affected by geographic proximity,policy consistency,and the horizontal relationship of administrative jurisdiction,which is reflected in multiple boundaries such as geographic boundaries,functional boundaries,and administrative boundaries in practice.This paper takes the cooperative governance of air pollution in the Yangtze River Delta as a case,and analyzes the effects of the multiple embedded relationships of different boundary mechanisms.And it proposes the regional governance logic from a single administrative boundary to multiple governance boundaries,in which the boundary"formation,scope,strength,flexibility,evolution,and coupling"issues are worthy of further study.