中国基层执法中的相机选择:从策略赋权到话语使用  

Selective Execution in China’s Grassroots Law Enforcement:From Strategic Empowerment to Legitimate Discourse Using

作　　者：吕普生[1] 吕忠 Lv Pusheng;Lv Zhong(School of Political Science and Public Administration,Wuhan 430072;Wuhan University,School of Government,Sun Yat-sen University,Guangzhou 510000)

机构地区：[1]武汉大学政治与公共管理学院,武汉430072 [2]中山大学政治与公共事务管理学院,广州510000

出　　处：《中国行政管理》2020年第2期78-86,共9页Chinese Public Administration

基　　金：国家社科基金一般项目“基于整体政府理论的县域综合行政执法体制改革研究”(编号:18BZZ082)。

摘　　要：在基层执法领域,纵向与横向部门之间的推诿、执法队伍与执法相对人之间的冲突,都是相关主体对于行政执法权采取相机选择策略的结果。既有研究局限于末端执法行为及其影响因素,将执法机构的权力配置视为"默认设置"项,忽视了初始权力配置对于执法策略选择的影响。行政执法权的选择性执行包括垂直互动关系中执法权的选择性下放,水平互动关系中执法主体间的选择性协同,以及政社互动关系中执法队伍与相对人对合法性话语的选择性利用。在垂直互动维度上,乡镇政府的赋权诉求与县级执法部门的控权惯性共同塑造出权能有限的乡镇综合执法机构,从而为基层执法权的运行设置了初始条件。在水平互动维度中,受制于条块结构约束和政府科层制特性,不同执法队伍之间缺乏具有约束力的协作机制,促使横向执法协作流于形式。在政社互动方面,党政体制所依赖的两套合法性话语,即伦理化的"人民政治话语"与理性化的"法制话语"之间的张力,塑造了乡镇执法权的名实分离取向,是文明执法诉求与暴力抗法实践两张皮现象的结构化动因。对于基层执法领域相机选择的三维互动分析,突出强调了初始权力配置与党政体制合法性话语对执法行为的重要影响,可以拓展和深化现有的基层执法行为研究。In the field of grassroots law enforcement,the conflict between the vertical and horizontal departments,the law enforcement departments and the law enforcement counterparts are the result of the selective execution strategy of the relevant subjects on the administrative law enforcement power. The selective execution of administrative law enforcement power includes the selective decentralization of law enforcement power in vertical interaction,the selective coordination among law enforcement subjects in horizontal interaction,and the selective use of legitimacy discourse by law enforcement and relatives in government-society interactions. In the vertical interaction dimension,the township government’s empowerment appeal and the county-level law enforcement department’s control inertia jointly shape the township comprehensive law enforcement agencies with limited power,thus setting initial conditions for the operation of grassroots law enforcement power. In the horizontal interaction dimension,subject to the constraints of "strip-block"(Tiao-Kuai)structure and bureaucratic hierarchy,there is a lack of binding cooperation mechanisms between different law enforcement departments,which promotes horizontal law enforcement cooperation formally. In terms of government-society interaction,the two sets of legitimacy discourses on which the party-state system depends,that is,the tension between the ethical people’s political discourse and the rationalized legal discourse,have shaped the separation of the name and practice of township law enforcement,and it is the structural motivation for the phenomenon of "two skins" at the grassroots level. The three-dimensional interactive analysis of selective execution in the grassroots law enforcement field highlights the important influence of the initial power allocation and the legitimacy discourse of the party-state system on law enforcement behavior,and can expand and deepen the existing grassroots law enforcement behavior research.

关 键 词：基层执法 选择性执行 乡镇综合执法局 条块约束 合法性话语 

分 类 号：D035[政治法律—政治学]