破解“一针穿千线”新矛盾——基层综合行政执法改革研究回顾与展望  

Addressing the New Challenge of"One Needle Threading Through a Thousand Lines":A Review and Outlook on Primary-Level Comprehensive Administrative Law Enforcement Reform

作　　者：陈念平 CHEN Nian-Ping

机构地区：[1]中共江西省委党校公共管理学教研部 [2]江西应急管理研究中心,江西南昌330108

出　　处：《党政研究》2024年第6期66-81,M0006,共17页Studies on Party and Government

基　　金：国家社科基金项目“基层综合行政执法的条块矛盾及化解机制研究”(23BZZ040);江西省社科基金项目“党建引领基层治理的工具组合及其有效性研究”(22ZZ04D)。

摘　　要：各地基层综合行政执法改革涌现出多种实践模式,但也出现了权责能失配、行为偏差及权力协调困境等与制度设计初衷相悖离的现象。在执法权的配置上,存在授权主体不适格、决定程序单向度、授权内容不适配等问题。而在授权程序上忽略基层意见表达,授权内容上未能契合基层实际情况、执法需求及执法能力,往往是点燃实践困境的导火索。在结构维度上,改革致力于通过纵向层级间事权调整来提高政府回应社会矛盾的能力和效率,但事权下沉也引发了条块矛盾下沉,使条块矛盾从县域层级的横向碎片化矛盾向基层“一对多”逆向协调难题转向。基层综合行政执法改革在结构维度即为横向执法权力或机构的综合集中与纵向下沉,核心是条块关系调整。未来仍需从条块关系入手,从一体化执法界面与专业化分工后台的条块互动关系,解释分流程(界面与后台)、分环节(审批、监管与执法)与分专业(职能部门)交叉的组织形态变化,及其引发的一针穿千线矛盾的新形态、新内容与新行为表现,探索化解机制。Various practical models have emerged in the context of comprehensive reforms in administrative law enforcement at the primary level across different regions.However,phenomena that contradict the initial goals of institutional design have also surfaced,including mismatches between authority and responsibility,behavioral deviations,and challenges related to power coordination.Issues concerning the allocation of enforcement powers often encompass improper subjects for authorization,unidirectional decision-making procedures,and misaligned content of authorizations.A common factor contributing to these practical difficulties is the oversight regarding primary-level input during authorization processes and a failure to align authorization content with actual conditions,enforcement needs,and capacities at the primary level.Structurally,these reforms aim to enhance government ability and efficiency in addressing social conflicts by adjusting vertical administrative authority.Nevertheless,this downward shift in authority has resulted in an escalation of interdepartmental conflicts,thereby creating complex coordination challenges that extend beyond horizontal fragmentation at the county level to"one-to-many"reverse coordination issues at the primary level.In essence,the reform of comprehensive administrative law enforcement at the primary level necessitates both horizontal integration and concentration of enforcement powers or agencies,as well as vertical delegation of authority.A key focus of this initiative is to adjust interdepartmental relationships effectively.Moving forward,it is crucial to address these relationships by scrutinizing the interactions between an integrated enforcement interface and specialized divisions at the backend.This involves analyzing organizational transformations characterized by segmented processes(interface and backend),distinct stages(approval,supervision,and enforcement),and specialized functions(functional departments).Furthermore,it is important to explore new forms,content,and behavio

关 键 词：基层综合执法 行政改革 条块矛盾 一针穿千线 职责同构 

分 类 号：D922.1[政治法律—宪法学与行政法学]