区域治理情境下行政区划的制度再构逻辑——基于深汕特别合作区的案例研究

The System Restructuring of Administrative Divisions under the Regional Governance of China——A Case Study of Shenzhen-Shanwei Special Cooperation Zone

随着新时期区域协调发展战略的深入推进,我国区域治理的制度建设与地方实践不断创新,加速推动了城市间权力、资源、人口等要素流动。在深度的城市间合作关系中,原本由行政区划严格划定的属地管理规则被部分改写,多重权力关系的交织互动促成了“临时性治理权威”的生成。这体现了我国行政区划从“区划规范作用”转向“区划有限作用”的再构逻辑,具体表现为市政管理体制权力结构被局部重组、资源流动突破区划屏障。本文以深汕特别合作区为例,分析了城市间合作如何在区域治理层面建构起临时性治理权威,以及既有的属地化治理权威如何对其进行规范约束的权力互动过程;并从实际出发,提炼总结了“特别合作区”模式的适用范围、具体类型和潜在治理风险,希望能为我国区域协调发展和城市间合作提供借鉴与启示。

The objective of this paper is to illustrate the restructuring logics of the administrative division and the innovative mechanisms of regional governance based on an inter-urban cooperative program in China.Extended case study method was conducted with three field visits to Shenzhen and Shanwei from 2018 to 2021,46 interviews in total,and secondary data including statistical yearbooks,government reports and local newspapers.It found,based on the case of Shenzhen-Shanwei Special Cooperation Zone,this paper argues that the local territorial jurisdiction principle once rigidly established by the system of administrative divisions has been changed.With the interwoven interactions of multiple power relations,a type of temporary governance authority is being produced in the context of regional governance.Such governance transformation reflects the restructuring of administrative division from a normalized role to a limited role,and it also represents a new governance mode where the local power structure is partly reorganized and resource flow breaks through the barriers of administrative division.The key limitation of the study is that it focuses mainly on a special inter-urban cooperative program where the politico-economic gaps between the two sides,Shenzhen and Shanwei,are huge.From this standpoint,the"Special Cooperative Zone"model is more suitable for inter-urban cooperation with"asymmetric inter-governmental relations"so that the one side in a higher politico-economic position is more able to establish regional governance authority and stabilize the cooperation relation.However this paper discusses the specific types and potential governance risks of the"Special Cooperation Zone"model from a practical application perspective,aiming to provide suggests for regional coordinated development and inter-urban cooperation in China.And it has several original values:Firstly,this paper expands the core concept of"authority"in the field of political science to a border connotation"governance authority".By discussing the local jurisdictional changes in the context of regional governance,it identifies a type of"Temporary Governance Authority"established in inter-governmental relation and the relation between extra-territorial government and local people.Secondly,this paper further summarizes the impact of"Temporary Governance Authority"on the shaping of China's administrative division as"Limited Role of Division".It aims to break through the inherent understanding that the administrative division is a barrier to regional governance,and to fill the gap where the practical role of administrative division has been excessively downplayed.