Reflection on Collaborative Air Pollution Control in Chengdu-Chongqing Urban Agglomeration, China

Urban agglomerations in developing regions are often prone to synergistic dilemmas due to differences in motivation and execution. This paper takes Cheng-Chongqing urban agglomeration in western China as a typical case, and collects 303 policy texts from the government’s official website from 2009 to 2020. The policy text analysis method is used to explore the spatio-temporal evolution of policies, policy subjects, policy objectives and policy tools, and to analyze the differences and synergy in air pollution control in depth. The results show that the current coordinated air pollution control in this area is mainly influenced by the order of the superior government and the promotion of the core cities of Chengdu and Chongqing, and shows a gradual and in-depth development trend. However, due to the differences in policy objectives and tools of collaborative governance subjects, the mining of voluntary collaborative governance forces and the use of different policy tools are not deep and perfect, and the equal cooperation among various subjects is still less.

. However, existing studies mainly focus on urban agglomerations with better coordinated air pollution governance, ignoring in-depth analysis of urban agglomerations with weaker coordinated air pollution governance. Based on this, this paper attempts to discuss the following questions: whether the collaborative air pollution governance in Chengdu-Chongqing urban agglomeration has been normalized? If not, what causes and paths lead to the dilemma of coordinated air pollution control? In order to answer the above questions, this paper takes Sichuan-Chongqing urban agglomeration as an example and uses the policy text analysis method to analyze 303 policy texts in time, space, subjects, objectives and tools, so as to explore the formation path of coordinated air pollution control in developing regions and reflect on it.

Coordinated control and Coordinated control of air pollution
Collaborative governance theory is a new cross theory composed of the synergy theory in the field of natural science and governance theory in the field of social science [7]. See from figure 1, it has the following characteristics:(1) Emphasis on multiple subjects. (2) Emphasize the consistency of goals. (3) Emphasize autonomy and dominance. (4) Emphasize collaboration and integration. Collaboration, that is, the major bodies need to cooperate. (5) Emphasis on institutional constraints. Based on the characteristics of collaborative governance theory, we can find that the five factors influencing the effect of collaborative governance are subject, goal, organizational form, resource and information sharing, system and tool [8].

Institutional collective action and Coordinated control of air pollution
When urban agglomeration takes collective action, it will encounter the dilemma of collective action. The framework theory of institutional collective action proposed by Richard C.Feiock has become a panacea to solve this dilemma [9].This theory includes the dilemma of institutional collective action and the dilemma resolution mechanism theory. See from figure 1, the institutional collective behavior theory and the pursuit of voluntary participation and implementation in higher-level departments can effectively solve the current behavioral dilemma. This paper uses this theory for reference when analyzing the collaborative governance mechanism and finds out the practical problems behind the difficulties faced by mechanism optimization from the predicament. 3 becoming more and more serious. In particular, Chengdu-Chongqing Urban Agglomeration is located in the Chengdu Plain in the eastern part of Sichuan Basin and the middle and upper reaches of the Yangtze River, which belongs to the subtropical monsoon climate zone. The monsoon is developed, with little sunshine, more cloudy days and high humidity [10]. In winter, the high mountains around Sichuan Basin block the cold air from the north, so the wind speed in the inner plain is low and the calm wind is more, which makes the air pollutants in winter cannot be carried away by the wind and, and the air pollution is serious in winter. Public policy refers to the code of conduct formulated by the government, non-governmental public organizations and the public in order to solve the common policy goals in the short term, solve the common social problems, and provide public products and services [10]. Therefore, the policies collected in this paper are governmental documents and normative behavior policy texts of the government, nongovernmental public organizations and the public. In this paper, two major data search methods are adopted: the collection of official website and the retrieval and sorting of "magic treasure of Peking University" [11].

Spatial analysis
See from figure 3, the policy issuance of Chengdu-Chongqing urban agglomeration has certain regional correlation characteristics and differences. In Chengdu-Chongqing city cluster, the first echelon is Chongqing, Dazhou and Chengdu. Chongqing and Chengdu are the most economically developed cities in Chengdu-Chongqing urban agglomeration. And Dazhou is the city closest to Chongqing. The secondtier cities are Deyang, Guang 'an, Ziyang, Neijiang and Yibin. These cities are located in the dual core junction of Chongqing and Chengdu. The third-tier cities are those far away from Chengdu, Chongqing and Shuanghe. This shows that the unbounded nature of air pollution and the spillover of air pollution are indeed related in regional space, and it is very necessary to co-control air pollution.

Policy objectives analysis
According to the policy text content analysis approach, using Nvivo software to encode 257 policy policy goals, coded 301 article policy goals, clustering and query analysis according to the content of policy objectives, the results are shown, Chengdu-Chongqing urban agglomeration in atmospheric pollution control of local government policy target, high consistency. See from table 1, 82% of the policy targets are driven by Sichuan Province or relevant laws and regulations. In addition, the coordinated air pollution control in Chengdu-Chongqing urban agglomeration is also inseparable from the strong promotion of Sichuan provincial government, and there are few nodes of voluntary cooperation between local governments. Meanwhile, voluntary forces accounted for only 34.6%. Among the voluntary forces, local governments mainly carry out air pollution control out of the consideration of territorial control and local competition for the honorary title of city. Finally, because some policy objectives are driven by both coercive and voluntary forces, voluntary and coercive forces account for more than 100%. Command and control policy tools, namely "target decomposition task distribution", "environmental supervision and enforcement". The Chengdu-Chongqing Urban Agglomeration government uses command-and-control policy tools in air governance, preferring to establish a sound mechanism, and taking a series of target responsibility system such as assessment indicators as the governance means, which is also the main means. Market-oriented policy tools, namely "excessive punishment", "fiscal subsidies and incentives", etc., through the "ecological environment compensation system", "ecological tax", "pollution charge", "paid for the use of sewage's discharge right and trade", etc., can be found in Chengdu-Chongqing urban agglomeration of policy tools, the class is more, could be punished less consider incentive measures. The voluntary policy tools show remarkable consistency, mainly using "publicity and education", "reward reporting", "information disclosure" and so on. Moreover, the local governments of Chengdu-Chongqing urban agglomeration also pay more attention to and actively promote public participation. administrative force, namely Sichuan Province, and there is little willingness and behavior of voluntary and equal cooperation. This situation is mainly caused by the difference of motivation and behavior between the main body of Chengdu-Chongqing urban agglomeration. In terms of the motivation of air pollution control, due to the competitive relationship between local government, no other cities have initiated cooperative governance initiatives except Chengdu and Chongqing. However, when analyzing the policy objectives, this paper finds that although there are differences in the policy objectives between cities, there are many identical policy objectives. Unfortunately, they did not dig into these policy objectives, forming a strong incentive for collaborative air pollution control. At present, the cooperation still remains in the mode of "commandimplementation" and "proposal-participation". The form of cooperation is passive. At the present stage, multiple tools have been used in the coordinated air pollution control in Chengdu-Chongqing urban agglomeration, but no institutional constraints have been formed. Although there are some cooperation policies, they only involve the direction and do not discuss about mechanism (trust, dialogue, consultation and sharing mechanism) in depth. At present, these aspects of Chengdu-Chongqing urban agglomeration are more or less mentioned in their own policies, without special mandatory policy constraints. In addition, the current policy tools proposed public participation, and reasonable use of incentive measures, also established a special technology in information sharing platform. However, public participation, and rewards and punishment strength is not enough.

Discussions and conclusions
This paper finds that :(1) The air pollution control in Chengdu-Chongqing urban agglomeration can be divided into three stages, and the collaborative governance model is still in the initial development stage in the second stage.(2) The formation motivation of collaborative air pollution control in Chengdu-Chongqing urban agglomeration is mainly from the compulsory promotion of the higher level government, while the voluntary cooperation motivation is still low.(3) Collaborative air pollution control has not been normalized, which is due to differences in motivation and implementation means. Different from the coordinated air pollution control in urban agglomerations of developed regions, the motivation of coordinated air pollution control in urban agglomerations of developing regions is mainly the coercion force pushed by superiors, while the motivation of independent cooperation is still not high. In the aspect of execution, no normal institutional constraints have been formed. Based on this, this paper puts forward four policy suggestions for the motivation and implementation of collaborative air pollution governance :(1) further enhance the driving force of the higher level government and the influence of the core cities. (2) Actively explore the common goals of other cities' own policies. (3) Strengthen the use of multiple tools and co-governance of multiple subjects. (4) Forming normalization of coordinated air pollution control through institutional constraints.