周伟 许珂

摘   要： “西咸一体化”战略目标已逾十六年，然而依旧成果寥寥。这其中有分权让利改革的制度诱因，也有市场机制发育不健全的机制障碍，还有西安咸阳两地政府作为集体行动的“经济人”造成的“集体行动”的困境等。要想解决西咸一体化发展缓慢的问题，整体性治理是一味良药。通过整合西咸一体化的合作治理体系，加强西咸一体化合作平台的建设，建构西咸一体化整体性治理组织机构，建立和完善西咸一体化整体性治理机制，构建西咸一体化整体性治理的网络结构，系统、动态地处理西咸一体化进程中出现的各类问题，助推西咸一体化。

关键词： 西咸一体化; 西咸新区; 府际关系; 整体性治理

中图分类号： F127               文献标识码：  A             DOI：10.13411/j.cnki.sxsx.2019.02.021

Abstract： The strategic goal of “Xixian integration” has been put forward for sixteen years， but there are still few achievements. Among them， there are institutional incentives for the reform of decentralization and transfer of benefits， institutional obstacles to the development of imperfect market mechanism， and the predicament of collective action caused by the Xian and Xian Yang governments as“economic men” of collective action. In order to solve the problem of slow development of integration， holistic governance is a good medicine by integrating the cooperative governance system of Xixian integration， strengthening the construction of Xixian integration cooperation platform， constructing the organization of Xixian integration holistic governance， establishing and perfecting the holistic governance mechanism of Xixian integration， and constructing Xixian integration. Meanwhile， it is crucial to promote the integration of Xixian by the network structure of integrated governance， the systematic and dynamic handling of various problems in the process of Xixian integration.

Key words： integration of Xian and Xianyang; Xi Xian new area; intergovernmental relations; holistic governance

西安市和咸陽市都位于陕西省中部的关中地区，同为历史文化名城，西安以汉唐故都闻名，咸阳以秦都自居，两个城市都有深厚的历史文化底蕴。然而在西安确定了建设国家中心城市、国际性综合交通枢纽、具有历史文化特色的国际化大都市的战略目标之后[1]，西安的“虹吸”效应加强，严重威胁着咸阳自身的地缘利益，导致两地发展矛盾日益激化，阻碍着西咸一体化进程的推进和“大西安”战略目标的实施。通过对西咸一体化的发展脉络的梳理，探寻西咸一体化所面临的困境，分析困境产生的深层原因并提出相应的解决策略，对推进西咸一体化进程无疑具有很强的理论和现实意义。

一、西咸一体化的发展沿革