Variegated city-region governance: centralised design, localised implementation and asymmetric integration in China’s Greater Bay Area

This study explores the complex interactions between centralised policies and local governance in China’s Greater Bay Area (GBA). Moving beyond state rescaling and spatial configurations, it highlights the intricacy of governance structures, policy implementations and intergovernmental dynamics. Using a mixed-methods approach – combining a content analysis of 679 policy documents with case studies of Qianhai and Hengqin – it reveals significant regional variations. In Qianhai, direct state support strengthens Shenzhen’s strategic role as a counterweight to Hong Kong, enabling significant local autonomy. Conversely, in Hengqin, a co-management model prevails in response to Macao’s administrative and economic constraints, with Guangdong assuming a more interventionist role and Zhuhai playing a peripheral part. These divergent practices underscore China’s variegated city-region governance strategy, where political, economic and administrative factors drive the selective allocation of governance authority. © 2025 The Author(s).