Bay areas, characterized by natural features and regional connections, have proven instrumental in economic and cultural development, as exemplified by the San Francisco, New York, and Tokyo Bay Areas. The Guangdong-Hong Kong-Macau Greater Bay Area (GBA), established in 2019, presents a unique case due to its "one country, two systems," "three customs territories," and "three legal systems" framework. This study investigates the context and characteristics of HE development within the GBA, addressing a gap in the international research literature. The study's significance lies in its contribution to understanding HE governance in the GBA and providing insights for policymakers and scholars to enhance regional higher education strategies. The research questions guiding this paper are: What are the characteristics of HE in the GBA? What are the challenges it faces? How might it develop? The study aims to answer these questions through empirical analysis of existing Chinese and English literature on GBA HE and in-depth interviews with academics and managers in the region.

The literature review examines the characteristics of major bay areas globally, focusing on the San Francisco, New York, and Tokyo Bay Areas, highlighting their HE systems and industry-university collaborations. The GBA's unique political and economic context, shaped by the "one country, two systems" policy, is discussed, emphasizing the distinct customs and legal systems of Guangdong, Hong Kong, and Macau. The review traces the historical development of GBA policy, including early proposals, agreements between Guangdong, Hong Kong, and Macau, and the 2019 Outline Development Plan. The review also explores other regionally integrated areas in China, including the Beijing-Tianjin-Hebei Economic Circle, the Yangtze River Delta Agglomeration, and the Chengdu-Chongqing Twin-City Economic Circle, to provide comparative context. The review critically analyzes existing literature on HE in the GBA, noting the scarcity of English-language studies and the need for empirical support. Key theoretical frameworks such as Knight's Functional, Organisational, and Political Approaches (FOPA) model and the Triple Helix model are introduced to provide analytical lenses for understanding HE's role in regional development.

This study employed a mixed-methods approach combining documentary analysis and semi-structured interviews. Documentary analysis involved a systematic review of government policies, official websites, and scholarly articles (both Chinese and English) focusing on HE in the GBA. The search strategy utilized keywords such as "Greater Bay Area," "HE policy in China," and "four Bay Areas worldwide." Databases included CNKI, Chinese Journal Full-text Database, China Education Database, Google Scholar, and the Hong Kong University library. The search process prioritized documents published from 2019 to 2021. A total of 92 texts were reviewed, with 65 covering HE, innovation hubs, and talent development. The selection of Chinese language materials was heavily influenced by the predominance of Chinese language research in this area. The literature review focused on 20 studies specifically addressing higher education in the GBA from CNKI. The interview phase used purposive and snowball sampling to recruit 16 academics and managers working in GBA HE institutions. Participants included a diverse range of gender, age, position, and geographical location (Guangdong, Hong Kong, and Macau). The interviews were conducted face-to-face in participants' native languages and lasted between 40 and 70 minutes. Data analysis employed thematic analysis using Nvivo software. The researchers followed a systematic process of data familiarization, initial coding, theme generation (inductively), theme review, and final theme definition. Three major themes with thirteen sub-codes emerged from the data.

The study reveals three key themes concerning HE in the GBA: HE within one country and two systems, Imbalanced profile in quality and quantity of HE provision, and Progressing partnerships from cooperation to strategic coordination to resource sharing. The "one country, two systems" framework presents unique challenges and opportunities. While there's inherent potential for cooperation due to shared cultural roots, differences in legal systems, educational laws, and university autonomy between Guangdong, Hong Kong, and Macau create complexities. Funding models, student tuition fees, and the internationalization of HE differ across the three regions. The study highlights an imbalanced distribution of HE resources, particularly in terms of student numbers and the prestige of institutions, with Hong Kong universities holding a significant advantage over those in Guangdong and Macau. Guangdong's industrial base offers a unique advantage in industry-education collaboration, but its universities lag behind Hong Kong institutions in internationalization. Despite these disparities, the potential exists for leveraging regional strengths to create a stronger, more integrated HE system. The study observes a progression in HE partnerships within the GBA, moving from informal cooperation to more formalized strategic coordination and resource sharing. The formation of the Guangdong-Hong Kong-Macau University Alliance represents a significant step in this direction, fostering joint research, exchange programs, and improved collaboration. This evolution mirrors McNay's model of cross-border cooperation, highlighting the shift from informal, interest-driven collaborations to more structured, government-supported initiatives. The successful establishment of cross-border campuses by Hong Kong universities on the mainland is also noted as a positive example of increased integration. The study shows that the GBA's HE landscape is dynamic, with ongoing efforts to improve collaboration, resource sharing, and the overall quality of HE provision. This involves integrating the diverse strengths of the three regions to achieve a world-class HE cluster.

The findings underscore the significant potential and challenges inherent in developing HE within the GBA's unique political and economic context. The "one country, two systems" framework, while posing challenges due to differing legal and administrative systems, also presents opportunities for synergistic collaboration and leveraging of distinct regional strengths. The study highlights the need for strategic planning and policy interventions to address existing imbalances in HE provision across the GBA and to foster a more integrated system capable of competing globally. The study's findings contribute to a more nuanced understanding of HE regionalization in a complex political context, suggesting lessons that may be relevant for other regions grappling with similar issues of cross-border collaboration. The study emphasizes the need for a more systematic approach to resource allocation, focusing on enhancing the quality and international competitiveness of HE institutions across the GBA. This requires not only increased cooperation between institutions but also innovative governance models that can accommodate the region's distinct characteristics while fostering integration.

This study contributes significantly to the understanding of HE development in the GBA, a region with a unique political and economic structure. The study reveals a dynamic interplay of challenges and opportunities in building a world-class HE cluster. Recommendations include learning from other global bay areas, particularly the San Francisco Bay Area's model of industry-university-research cooperation. The study suggests further research to explore the implementation of these models within the GBA context, considering the specific challenges and opportunities presented by the 'one country, two systems' framework. It also advocates for a continued focus on fostering closer collaboration among institutions, addressing resource imbalances, and improving the internationalization of HE across the GBA.

While this study provides valuable insights into the characteristics and development of HE in the GBA, several limitations should be considered. The reliance on qualitative data may limit the generalizability of findings to other contexts. The study's focus on academics and managers' perspectives might not fully capture the experiences and views of other stakeholders, such as students or industry representatives. The temporal scope of the research might limit the ability to capture long-term trends in HE development within the GBA. The predominantly Chinese language research base might also have introduced a bias in the study's findings.