长三角一体化背景下城际断头路联通障碍及治理路径研究

Inter-city broken road connection obstacles and governance path under the regional integration of the Yangtze River Delta

城际断头路是中国都市圈一体化发展过程中的瓶颈,如何通过区域协调机制的建立联通断头路是区域跨界治理领域的重要研究问题。本文在国内外文献综述基础上基于尺度间话语和组织互动视角构建区域跨界治理分析框架,进而选取长三角地区两条位于都市圈中心城市与周边城市之间的断头路区域合作案例,采用参与式观察、半结构访谈等质性研究方法进行实证研究,并从中归纳了断头路联通存在的主观和客观障碍,以及国家战略干预下断头路联通的区域跨界治理路径。研究表明,在强-弱组合型的区域合作中,双边话语权不对等和地方本位主义引起合作主观障碍,区域发展及地方财政实力差异、规划调整困难带来合作的客观障碍。长三角一体化上升为国家战略之后,中央政府通过编制具有法律约束力的区域规划将断头路联通纳入地方政府工作内容,加之公众舆论自下而上的督促,形成了以区域合作为主流的政策话语环境,破除了城际断头路跨界治理的主观障碍。地方政府通过建立实体化、兼具横向和纵向协调功能的区域协调平台,打破相同层级和不同层级政府间的信息不对称,并通过编制区域合作行动计划推动合作项目落实到各地方政府的年度建设计划,破除了建设用地指标和建设资金短缺的客观障碍。

This paper established an analysis framework of regional cross-border governance from politics of scale,then selected two cases of broken road between the central city and peripheral in the Yangtze River Delta,and finally conducted empirical research through participatory observation and semi-structured interview.Case study indicated that before the integration of the Yangtze River Delta became a national strategy,the phenomenon of broken roads were not only the absence of public affairs governance at city-region scale,it is also the development strategy of rational local government after trading off.In regional cooperation characterized with strong-weak combination,the asymmetry of discourse power and local selfishness lead to subjective obstacles of cooperation,and regional development and local financial strength differences,planning adjustment difficulties bring about objective obstacles.After the integration of the Yangtze River Delta became a national strategy,the central government incorporated broken roads connection into the work of local governments by compiling legally binding regional plans,and the public opinion urged the local government from bottom-up,which both make regional cooperation as the mainstream policy discourse.In this context,the local governments established a materialized regional coordination platform with both horizontal and vertical coordination functions,in order to break the information asymmetry between governments at the same and different levels,and promote the implementation of cooperation projects into the annual construction design plans of local governments through the preparation of regional cooperation action plans,which breaks the objective obstacles of construction land index and construction fund shortage.In this sense,the regional coordination platform becomes an effective supplement to the existing administrative management system.