非对等府际合作何以生成:“双边嵌入式网络”——以成渝科技协议为例

How does Unequal Inter-Local Collaboration be Generated:“Bilateral Embedded Network”--With Chengdu-Chongqing Science and Technology Agreement as an Example

当前,地方政府在面对公共事务治理的跨域性、外部性特征时,难以继续向传统属地管理模式求解。这对府际合作提出了更高的要求,由此也形成了以双边、多边协议为代表的合作模式。基于制度性集体行动理论对交易成本与风险的影响分析,能够对府际合作中伙伴选择、网络结构和形式等微观行动机理进行解释。通过对成渝地区双城经济区科技创新协议案例的考察,发现“成都—重庆”的非对等行政级别府际间合作的生成,离不开更高级别的省级政府层面协调和其他相关城市参与的多边协调,这揭示了行政级别不对等府际间合作的复杂逻辑。面对行政等级与外部环境变量的差异,地方政府的行动逻辑随之变化,基于“量力而行”、成本与风险管理、强强联手、协调带动的复杂过程,实现了节点组团与合作拓展的“团—团”链接。在此基础上“,双边嵌入式网络”促进了这种非对等府际合作的生成。

Currently,local governments are facing the difficulties of cross-domain and externality in public affairs governance,making it challenging to continue with the jurisdictional management institution,and place higher requirements for inter-local col‐laboration,thus forming cooperation models represented by bilateral and multilateral agreements.The emergence of Chengdu Chongqing Science and Technology Agreement can inspire the birthing process of bilateral cooperation with unequal administrative hierarchy.Through the analysis of the impacts of the Institutional Collective Action theory on transaction costs and risks,micro-ac‐tion mechanisms of partner selection,network structure and form in inter-local cooperation can be explained.However,this kind of unequal inter-local cooperation between Chengdu and Chongqing has bred the reciprocal cooperation pattern,which is inseparable from the multilateral coordination of other regions represented by Sichuan.This reveals the complex logic of inter-local collabora‐tion.Faced with the differences between administrative levels and external environment variables,the logic of local governments’actions changes accordingly.Based on the considerations of“Within our capabilities”,Cost and risk control,“win-win co-opera‐tion,coordinated drive”,the“clique-clique”link of node grouping and cooperation extension is realized.Furthermore,‘Bilater‐al embedded network’facilitates the generation of this unequal inter-local cooperation.