尺度重构视角下区域基础设施合作治理机制 : 以珠三角城际铁路为例

立足于尺度重构理论，聚焦在区域基础设施建设问题中合作机制缺位、利益分配不均等现实问题，并通过对比分析科层制与尺度重构理论，演绎区域治理中政府决策、空间利益辩护、项目发展演化的特征与逻辑。研究认为，区域治理具有多层级与多尺度特征，在基础设施建设与规划阶段中不断调整主导政府层级与嵌入空间尺度。并以珠三角城际铁路作为实证案例，讨论区域合作背景下的城际铁路建设问题。研究发现，科层与尺度的调整是区域治理事权和空间利益分配多层级化的核心体现。在中国科层体系的背景下，“条条部门”不涉及空间利益的决策，因此以“部委”为主线的治理路径长于坚守技术理性、短于衡平多元利益关系；“块块部门”是属地社会经济发展的第一责任人，长于处理多元主体利益分配、短于维护技术理性与监管地域发展不平衡问题。基于此，基础设施规划建设合作的阶段性调整体现的目的在于适应社会经济发展目标、解决国家战略推进瓶颈、选择更具适配的空间尺度以处理利益分配问题。

Through the discussion of the regional fragmentation and intercity cooperation, this article focuses on the grounded problem of intergovernmental conflicts in regional governance. By introducing the concept of bureaucracy from political science, and politics of scale from geography, this article discusses the process of decision-making in regional policy formulation, by which the state impose influence through the multi-level governments and multi-scale spaces. It strategically consolidates regional development agenda and continuously adjusts its leading hierarchy through the rescaling processes. Empirically this article uses the Pearl River Delta intercity railway as a case to discuss how municipalities are integrated to pursue regional cooperation and reach concensus. It found that the adjustment of bureaucracy and scale is a sectional reflection of the state objectives. In the context of China's hierarchical system, the hierarchical does not involve decision-making related to spatial interests. As a result, the governance path centered around ministries tends to prioritize technical rationality while being less effective in balancing diverse interest relationships. Conversely, the provincial governments are the primary responsible entities for local socio-economic development. They excel in managing the distribution of interests among multiple stakeholders but struggle with maintaining technical rationality and addressing regional development imbalances. Based on this, the phased adjustments in cooperative infrastructure planning and construction aim to align with socioeconomic development goals, overcome bottlenecks in national strategy implementation, and choose more suitable spatial scales to address issues of interest distribution.