执法召集制:“吹哨报到”机制如何使综合执法运转起来  

Law Enforcement Convening System:How the“Whistle-Summon”Mechanism Making Comprehensive Law Enforcement Work

作　　者：吕普生[1] 张梦慧 LüPusheng;Zhang Menghui(不详)

机构地区：[1]武汉大学政治与公共管理学院,湖北武汉430072

出　　处：《河南社会科学》2021年第2期94-106,共13页Henan Social Sciences

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

摘　　要：尽管推进综合执法被视为破除执法碎片化困境的改革方向,但如何使基层综合执法真正有效地运转起来,一直是我国行政执法体制改革过程中面临的突出难题。对此,北京市的改革探索通过建立执法召集制,建立起了"街乡召集-部门回应"的基层执法机制,将治理需求与权责主体精准对接,实现了基层行政执法的纵向层级联动和横向跨部门协同。基层政府通过实行执法召集制,巧妙绕开了传统上困扰乡镇执法队伍的执法主体资格问题,缓解了基层执法力量不足的治理困境,并通过上下合力建立起了跨部门综合执法长效运转的保障机制。执法召集制之所以生效,是由于它以"执法召集权"为支撑,与我国党政科层制中执政党的引领功能和组织能力密切相关。执法召集制背后实际上是赋予街道及乡镇政府的执法召集权,它是包括执法启动权、组织权、协调权、监督权、考核建议权等在内的一组权力集合,是将分散的执法权整合起来的一种组织化力量。以执法召集制推动跨部门综合执法的模式,为当前基层执法走出多重困境提供了新的思路,也为打破传统官僚制的纵横双重壁垒提供了中国经验。Although the promotion of comprehensive law enforcement is regarded as the reform direction tobreak the predicament of law enforcement fragmentation,how to make the grassroots comprehensive lawenforcement work effectively and truly has always been a prominent problem in the process of reforming theadministrative law enforcement system in China.In this regard,Beijing’s reform and exploration is to give thestreets and township governments the power to convene law enforcement.As a collection of powers including thepower to initiate,organize,coordinate,supervise and evaluate suggestions,law enforcement convening power arenot law enforcement power itself,but an organizational force that integrates scattered law enforcement power.Bygiving the street and township law enforcement rights,Beijing has established a grassroots law enforcementmechanism of"street township convening-department responsing",which accurately connects the governanceneeds with the power and responsibilities,and achieves the linkage and inter-departmental coordination ofgrassroots administrative law enforcement.By exercising the power to convene law enforcement,the grassrootsgovernment has cleverly circumvented the issue of the qualifications of law enforcement subjects that havetraditionally plagued the law enforcement teams in towns and villages.To a certain extent,it has alleviated thegovernance dilemma of insufficient grassroots law enforcement forces,and through the joint efforts to establish along-term comprehensive law enforcement system’s operational guarantee mechanism.The model of promotingcross-department comprehensive law enforcement with law enforcement convening power provides a new way ofthinking for getting out of the current multiple difficulties of grassroots law enforcement.The reason why lawenforcement convening power takes effect is closely related to the leading function and organizational ability ofthe ruling party in China’s party and government bureaucracy.

关 键 词：“街乡吹哨、部门报到” 执法召集制 综合行政执法 党政科层制 

分 类 号：D60[政治法律—中外政治制度]