美国的“深层国家”:现实与迷思

“Deep State”in America:Reality and Myth

“深层国家”作为美国的外来词,在2016年大选前后开始在关于美国政治的讨论中流行开来。本文聚焦于美国的官僚体系和职业官僚与白宫的关系,试图从学理上并在经验层面上去探讨所谓“深层国家”这一议题。一方面,美国职业官僚的多元性及其官僚体系的相对开放性意味着在美国政治中不存在一个有系统性、组织性和特定意识形态色彩的“深层国家”;另一方面,在特朗普时期,白宫和官僚体系之间长期存在的紧张关系的确达到了高峰。出于宪法法律、专业规范或者政策分歧等原因,职业官僚通过拖延、泄密、辞职以及诉诸总监察长办公室和国会相关委员会等方式,对白宫的指令进行了一定程度的抵制。特朗普及其支持者则通过决策的集权化和人事的政治化,试图对官僚体系施加更强有力的控制。白宫和官僚体系的互动既体现了特朗普时期的民粹主义特色,也反映了美国宪政结构长期存在的结构性张力,还触及官僚体系的独立性和专业性与对其进行政治控制之间关系的普遍性问题。

“Deep stateis”a borrowed concept in American politics,yet it quickly became a buzzword during the 2016 presidential election and the inauguration of Donald Trump.This article focuses on the U.S.bureaucratic sys-tem and the relationship between the White House and career bureaucrats to shed light on the controversy about the“deep state”.On the one hand,the diversity of the U.S.career bureaucrats and the relative openness of its bureaucratic system means that it is impossible that a systematically organized and secretive“deep state”exists.On the other hand,during the Trump administration,the tension between the White House and the bureaucratic system had reached a new high.Out of reasons of constitution and law,professional norms,and policy disagreements,career bureaucrats resisted certain orders from above through foot-dragging,leaks,resignations,and appealing to inspectors general and Congressional committees.The White House attempted to exert tighter control over the bureaucracy via centralization and politicization.The dynamics of the interaction between the White House and the bureaucracy reflected Trump’s populist approach and the structural tension of the U.S.constitutional order,as well as the general challenge of balancing the professionalism and autonomy of bureaucracy and its political control.