信访制度的双重逻辑与“非行政信访”——以A市重复集体访为例(2010～2014年)  

The Dual Institutional Logic of China’s Petition System and the “Non-Administrative Petition”: An Empirical Study of Repeat Collective Petitions in City A (2010～2014)

作　　者：夏瑛[1,2] Xia Ying

机构地区：[1]中山大学中国公共管理研究中心 [2]中山大学政治与公共事务管理学院

出　　处：《政治学研究》2019年第4期102-111,M0005,共11页CASS Journal of Political Science

摘　　要：本文对A市2010~2014年间重复集体访的研究发现:民众利益诉求构成重复集体访的主体,信访制度在事实上发挥着纠纷解决机制的功能;大量“非行政信访”进入信访渠道,信访的实际工作远超行政信访所规范的范畴。“非行政信访”的大量存在,与信访制度同时具有“政治”与“行政”两种制度逻辑有关。政治逻辑推动信访制度向“大信访”方向发展,行政逻辑则要求信访制度向边界分明的“小信访”靠拢。政治与行政两种制度逻辑的交错为信访工作带来不确定性,而这实际上是信访制度尚未发展成熟、两种制度逻辑尚未得到理顺的表现。从根本上而言,信访的两种制度逻辑并不冲突,它们都是信访制度的应有逻辑,并行不悖地指导着信访制度向前发展:政治逻辑是信访的制度之本,指导信访工作的思想立意与服务态度;行政逻辑规范信访工作的具体工作程序和工作范畴,是信访制度走向法治化、专业化和全面制度化的必经之路。信访的制度化,须在政治逻辑的指导下落实行政逻辑,在法治方法的规范下做实群众工作。Based on repeat petitions in city A in China from 2010 to 2014, this study finds that almost all the petitions are for materials interests of the petitioners. China’s petition system is actually running as a disputes resolution organ. A vast number of “non-administrative petitions” are crowded into the petition channel and overload it. The existence of the “non-administrative petitions” is due to the dual institutional logic of the petition system itself. The political logic is pushing the system towards the “broad” end, whilst the administrative logic is restricting it to a “narrow” end. This dual institutional logic brings uncertainties into the petition system. Nevertheless, they do not contradict each other. The political logic serves as the fundamental philosophy of the petition system while the administrative guides the actual work of the petition organs. A combination of the two will eventually leads to further institutionalization of the petition system in China.

关 键 词：信访 制度逻辑 重复集体访 行政信访 非行政信访 

分 类 号：D632.8[政治法律—政治学]