Optimization of Cross-Border Public Transport Services from a Pluralistic Governance Perspective: A Case Study of the Bus Capacity Between the University of Macau and the Hengqin Port

This study investigates the public transport capacity shortage between the Hengqin Port and the University of Macau (UM), situating the issue within the distinctive governance context of the Macau SAR. Drawing on stakeholder theory and public value theory, we analyze how cross-border administrative fragmentation and competing local interests shape public service. Using the surveys of 150 UM students and in-depth interviews, we found that the rising demand for cross-border commuter service is only part of the capacity shortfall. Cross-border transport capacity is constrained by jurisdictional divides between Macau and Guangdong authorities, fiscal incentives, and protectionist practices that prioritize local operators over regional efficiency. These dynamics reflect broader compromises of the “One Country, Two Systems,” where coordination between governments and accountability remain limited. The study concludes with policy recommendations aimed at alleviating immediate transport shortage while fostering cooperative mechanisms to strengthen integrated public service across Macau and Hengqin.