中央政府介入地方合作的类型、行为及其治理逻辑

Central Government’s Intervention in Local Cooperation:Its Logic in Types,Actions and Governance

地方政府合作治理是处理跨行政区划公共事务的重要治理取向,如何借助中央政府的权威解决地方政府合作中的任务协调、利益分割和行为监督等问题得到普遍关注。基于合作意愿与合作风险维度,考察不同情境下中央政府介入地方合作的行为差异,可以将其类型图景划分为结对型合作、补偿型合作、分配型合作和共享型合作。研究发现,中央政府的差异介入行为与合作阶段有着密切联系,在合作动机形成、合作关系运作和合作边界拓展阶段中,中央政府的介入机制也分别表征为动员性介入、制度性介入与战略性介入。中央政府的介入并非只是对地方政府自发合作能力不足的补充,府际关系调整和重构所具有的意义超越了府际关系本身,分别蕴含着安全治理、高效治理和均衡治理目标。从国家治理层面探讨中央政府介入地方合作的多重逻辑,能够为解释中央政府介入地方合作的“宏观—微观”视角结合提供可能。

Cooperative governance of local governments is an important governance orientation in dealing with public affairs across administrative divisions.It has been widely concerned how to use the authority of central government to solve the problems of task coordination,interest segmentation and behavior supervision in local government cooperation.Based on the dimensions of both cooperation willingness and risk,this paper investigates the behavior differences of central government intervened in local cooperation in different scenarios through four cases,which are pairing cooperation,compensation cooperation,distribution cooperation and sharing cooperation.Through the comparison of multiple cases,it is found that the different behaviors of central government are closely related to the cooperation stage.In the formation of cooperation motivation,the operation of cooperative relationship and the expansion of cooperation boundary,the central government’ s intervention mechanism is also characterized by mobilizational intervention,institutional intervention and strategic intervention.The intervention of central government is not just a makeup for the deficiency of spontaneous cooperation ability of local governments.The significance of adjusting and reconstructing intergovernmental relations goes beyond the relations themselves,and reaches into the goals of safe,efficient and balanced governances,respectively.Exploring the multiple logic of central government’ s involvement in local cooperation from the perspective of national governance can provide a possible chancre to explain the "macro-micro" perspective of top-down involvement in local cooperation.