精准合作:新时期澳门特区政府区域合作发展的新路向

Precise Cooperation: A New Direction of Regional Cooperation for Macao SAR Government in the New Era

根据区域合作市场的需求-供给分析框架,并运用其阐释泛化合作、精准合作、低度合作的三种合作策略。基于此框架可发现,回归前及回归初期,澳门与内地的合作是一种低度合作;自2003年《内地与澳门关于建立更紧密经贸关系的安排》和2004年《泛珠三角区域合作框架协议》签署实施以来,随着国家治理港澳的政策与重大发展战略的适应性调整,澳门与内地逐步形成了泛化合作的区域合作态势,表现在合作的空间、领域和层级三个方面。泛化合作策略有违澳门"微型经济体"的体量现实,面临着合作资源深度性不够、持续性不足、针对性不强、同构化问题等现实瓶颈。通过从组织建设、产业结构以及政策环境三方面评估澳门的区域合作供给能力可进一步发现,泛化合作策略之所以面临瓶颈,乃是由于澳门特区政府的区域合作供给能力既无法在"量"上有效地满足旺盛的区域合作需求,也未能从"质"上得以全面提升。鉴此,在"一带一路"建设和粤港澳大湾区合作的新时代,澳门特区政府需因应合作环境的变化,积极调整区域合作策略,实现从泛化合作到精准合作的策略转型。

This paper proposes a demand-supply analysis framework for approaching the regional cooperation market, and uses it to explain the three types of cooperation strategy: general cooperation, precise cooperation, and low-level cooperation. Based on this framework, it can be found that Macao and the mainland had low-level cooperation before and during the early stage of Macao’s return to the motherland. Given the implementation of the Mainland and Macao Closer Economic Partnership Arrangement and the Pan-Pearl River Delta Regional Cooperation Framework Agreement as of 2003 and 2004 and the continuous adjustment of the central government’s policy on governance of Hong Kong and Macao as well as major development strategies, Macao has gradually entered into general regional cooperation with the mainland, as reflected in the space, domain and level of cooperation. However, the general cooperation strategy does not fit the reality of the micro-economy of Macao. Therefore, the regional cooperation faces practical bottlenecks, such as inadequate depth, sustainability, relevance of cooperation resources as well as the problem of homogenization. An evaluation of Macao’s supply capacity for regional cooperation from the perspectives of organizational construction, industrial structure, and policy environment reveals that the bottlenecks in general cooperation are attributable to two factors. First,the supply capacity of the Macao SAR government for regional cooperation cannot meet the brisk demand of regional cooperation. Second, the supply capacity of the Macao SAR Government has yet to gain all-round improvement in quality. Therefore, in the new era of cooperation for pursuing"the Belt and Road Initiatives"and building the Guangdong-Hong Kong-Macao Greater Bay Area, the Macao SAR government needs to actively adjust regional cooperation strategies in response to changes in the cooperation environment to achieve a strategic transformation from general cooperation to precise cooperation.