粤港澳大湾区治理框架比较研究：基于制度环境视角

随着粤港澳大湾区上升为国家战略，湾区治理成为学术界关注的重要议题。文章构建包括权力结构、法律结构和社会资本结构3个维度的湾区治理制度环境比较研究框架，运用文本/桌面分析法，系统总结了大湾区与旧金山和东京湾区的治理框架，比较分析了3个湾区治理的制度环境；研究认为，湾区治理的模式特征及其效果与由权力结构、法律结构和社会资本结构构成的制度环境密切相关；权力结构影响着治理的灵活弹性，粤港澳大湾区权力结构呈现非对称和碎片化特征，总体较为封闭集中，导致治理模式单一，始终以政府为主导；法律结构影响着治理的交易成本，粤港澳大湾区尚未形成统一高效的法律体系结构，导致治理过程中的交易成本较高；社会资本结构影响着治理的多元参与和湾区凝聚力，粤港澳大湾区正向社会资本相对薄弱，多元参与治理不足，湾区自下而上的凝聚力不强。最后建议大湾区治理宜从权力、法律和社会资本结构入手，探索三地各自优势下的制度空间灵活重构；在制度环境建设中，引导非政府主体稳定有序参与治理，以提升大湾区凝聚力；在保证中央和省政府的权威方针基础上，适时探索大湾区地方政府的放权自治。

Comparative Study on the Governance Framework of the Guangdong-Hong Kong-Macao Greater Bay Area:From the Perspective of Institutional Environment

As the Guangdong-Hong Kong-Macao Greater Bay Area has become a national strategy, bay area governance has become an important issue of academic attention. Existing studies pay more attention to specific governance measures and current situation, and there are few studies on the environmental causes behind them. In addition, most of the existing studies focus on the governance of the Greater Bay Area from a single perspective of politics, law, economy, culture and society, and lack of a more comprehensive institutional environment perspective to summarize the theoretical explanation of the political, legal and participant issues that are particularly prominent in the governance of the Greater Bay Area. Therefore, studying the construction of a comparative analysis framework around the institutional environment is aimed to examine the internal causes of the governance characteristics of the Greater Bay Area, enrich the research perspective of domestic regional governance, and provide suggestions for the governance of the Greater Bay Area. This paper constructs a comparative research framework of bay area governance institutional environment, including three dimensions of power structure, legal structure and social capital structure. Using the text/desktop analysis method, it systematically summarizes the governance frameworks of the Greater Bay Area, San Francisco Bay Area and Tokyo Bay Area, and comparatively analyzes the governance institutional environment of the three bay areas. The study holds that the mode characteristics and effects of bay area governance are closely related to the institutional environment composed of power structure, legal structure and social capital structure. The power structure affects the flexibility of governance, and the power structure of the Greater Bay Area is asymmetric and fragmented, which is relatively closed and centralized, resulting in a single governance model always dominated by the government; the legal structure affects the transaction cost of governance, and the Greater Bay Area has not yet formed a unified and efficient legal system structure, resulting in higher transaction cost in the governance process; and the social capital structure affects the multiple participation in governance and the cohesion of the bay area, and in the Greater Bay Area, the positive social capital is relatively weak, the multiple participation in governance is insufficient and the bottom-up cohesion is not strong. Finally, it is suggested that the governance of the Greater Bay Area should start from the power, law and social capital structure, and explore the flexible reconstruction of the institutional space under the respective advantages of the three regions; in the construction of institutional environment, non-governmental subjects should be guided to participate in governance stably and orderly, so as to enhance the cohesion of the Greater Bay Area; and on the basis of ensuring the authoritative policies of the central and provincial governments, it should explore the decentralization and autonomy of local governments in the Greater Bay Area in due course. This paper constructs an institutional environment including power structure, legal structure and social capital structure, and comparatively analyzed the governance characteristics of the three bay areas under different institutional environments. From a more comprehensive perspective of environmental internal factors, it makes a theoretical explanation of the particularly prominent issues of politics, legal system and participants in the governance of the Greater Bay Area, which enriches the research perspective of regional governance in China.