全过程视域下的撤县(市)设区府际博弈与调适——基于Z市S区行政区划调整30年的纵向追踪

Intergovernmental Game of City-County Merger under the Perspective of Whole-Process:Longitudinal Tracking Based on the Administrative Division Adjustment in S District of Z City for 30Years

撤县(市)设区不是一蹴而就的,伴随其间的府际博弈,深刻影响着调整的进程与成效。虽然已有研究比较丰富,但主要集中于事前的动因分析或事后的绩效评估,尚未有研究系统归纳贯穿撤县(市)设区不同阶段的府际博弈逻辑及其深刻影响。基于已有研究和经验事实,以历史追踪而非点状的视角观察撤县(市)设区进程,从组织逻辑下居于主导地位的上级权威、激励逻辑下事实存在的下级弱自主性、目标逻辑下必须兼顾的稳定与发展三个层面,构建了一个理解撤县(市)设区府际博弈与调适的分析框架。在此基础上,通过对Z市S区30年相关行政区划调整过程的纵向追踪,发现各级政府遵循不同的博弈逻辑进行策略选择,进而形成了不同程度上的服从、合作甚至对抗模式,深刻影响着区域融合发展进程,也间接表明撤县(市)设区并不能直接推动新设区与主城区的融合发展。上述工作不仅初步打开了贯穿撤县(市)设区全过程的府际博弈“黑箱”,也拓展了基于过程视角的府际关系研究的适用场景与解释限度。

City-county merger does not happen overnight,and the intergovernmental game that accompanies it profoundly affects the process and effectiveness of the adjustment.Although there was a wealth of relevant research,they mainly focused on the ex-ante analysis of motivations or ex-post performance evaluation.There is no research has systematically summarized the logic of intergovernmental games and their profound impact throughout the different stages of city-county merger.This paper builds on existing research and empirical facts,observes the process of city-county merger from a historical rather than a point perspective,and constructs a process analysis framework for understanding the intergovernmental game of city-county merger and its adaptation from three levels:the authority of superiors that cannot be defied under the organizational logic,the autonomy of subordinates that cannot be fully obeyed under the incentive logic,and the stability and development that must be balanced under the goal logic.Based on this,through a longitudinal tracing of the process of administrative division adjustment in the last 30years of Z city S district,it is found that the governments at the upper and lower levels follow different game logics to make strategic choices,which in turn form different degrees of obedience,cooperation and even confrontation patterns,profoundly affecting the process of regional integration and development.This also indirectly indicates that city-county merger does not directly promote the integration and development of the newly created districts with the main urban areas.Through the above work,the thesis not only opens the“black box”of the intergovernmental game in the whole process of city-county merger but also expands the applicability and explanatory limits of intergovernmental relations research based on a process perspective.