论大湾区的规则体系和治理结构

Rule System and Governance Structure of the Greater Bay Area

区分中央特区关系和内地港澳关系,为理解粤港澳大湾区的规则体系和治理结构提供了理论框架。粤港澳大湾区建设需要兼顾维系良好中央特区关系和内地港澳关系的需要,而难点在于后者。在大湾区规则体系中,中央特区关系集中体现为统一适用的宪法条款,而内地港澳关系则体现为跨域合作协议及其附属文件。在治理结构中,前者体现为中央的统一领导,以及中央政府部门的监督协调;后者体现为粤港澳地方政府间的互相协调。广东省政府未来可扮演签署跨域合作协议的“内地”主要代表角色。为推动大湾区规则体系尽快形成,降低交易成本,协议附属规范性文件宜有专门机构负责制定。内地方面宜善用经济特区立法权。

In elaborating the rules system and governance structure of China’s Guangdong-Hong Kong-Macao Greater Bay Area(GBA),the relationship between the Central Government and the Special Administrative Regions(SARs)and that between the Chinese mainland and Hong Kong/Macao shall be intelligibly distinguished.The development of GBA requires to cautiously maintain both relationships,but that of Mainland-SARs is of more significance in praxis.In the GBA rules system,the relationship of Central-SARs has been epitomized in the generally applicable constitutional clauses,and the rules regarding of the relationship of Mainland-SARs are incorporated into cross-region cooperation agreements and protocols.In the governance structure,the former relationship dictates the overall jurisdiction of the Chinese Central Government and the coordinating functionalities of central government departments,and the latter has been embodied in inter-government cooperation amongst Guangdong,Hong Kong,and Macao.In signing future cooperation agreements,the Guangdong government should be equipped to represent the entire Chinese mainland,not merely the province.An inter-government institution needs to be established to enact implementation protocols and foster a mature rules system to reduce transaction costs.In this process,the legislative powers of mainland special economic zones of Shenzhen and Zhuhai can also be contributive should they be utilized in a thorough manner.