图们江地区开发作为东北亚地区第一个政府范畴的多边经济合作项目，并且其中要素丰富，参与主体及协调机制完善，在未来具有非常大的发展潜力。本研究从多层治理的视角出发，将问题聚焦在区域合作中处于不同层级的行为体之间的角色变化和互动方式，利用多层治理视角，探索建立超国家（国际组织）、中央政府（国务院）、地方政府和非政府行为体（跨国企业、企业、民间组织）之间的多层互动模式。基于图们江次区域合作发展历程，分析行为体在不同层级的身份属性和行为逻辑，阐释该地区合作主体的复杂性以及由此带来的合作的灵活性以及松散性，从而发现目前存在的困境和问题并提出改进建议。

As the first government-wide multilateral economic cooperation project inNortheast Asia, the Tumen River region has great development potential in the future, with rich elements, perfect participants and coordination mechanisms. From the perspective of multi-level governance, this study focuses on the role changes and interaction modes between actors at different levels in regional cooperation, and explores the establishment of multi-layer interaction models between supranational, central government, local government and non-governmental actors from the perspective of multi-layer governance. Based on the development process of cooperation in the Tumen River subregion, this paper analyzes the identity attributes and behavioral logic of actors at different levels, explains the complexity of cooperation subjects in the region and the flexibility and looseness of cooperation brought by it, so as to find out the current dilemmas and problems and put forward suggestions for improvement.