条块关系与基层执法权属地化的结构困境——Y镇“乡镇综合行政执法”的个案分析

The Structural Dilemma of Tiao-Kuai Relation and Localization of Law Enforcement Power at the Grassroots Level——A Case Analysis of Township Comprehensive Administrative Law Enforcement in Y Town

在基层条块关系中,条线属事与乡镇属地之间权责不对等,制约基层治理效能提升。基层治权向乡镇属地倾斜,推进乡镇行政执法权落地,是提升基层治理能力、促进政府治理规范化的必要探索。但基层执法权从条线部门转向属地化配置能否提升治理绩效,有待考证。基于Y镇实践案例分析发现:在“查处分离”的权力配置原则下,专项审批权和属地执法权得以主体明确,使得基层专项治理呈现出条线部门审批、乡镇属地集中执法的方式;条线与乡镇的互动过程在执法权属地化配置下呈现出更加多元的趋向,包括底线原则上的协作互动、属地主导的模糊监管执法行为以及原则性刚性执法等。执法权属地化是条块协作的有益探索,但基层治权仍然存在权责利不均衡、边界模糊的结构困境,因而需要平衡多元治权主体间的行动一致性,使得基层治权围绕乡镇属地治理来进行优化配置,促进基层政府治理规范化、制度化。

In the Tiao-kuai (vertical departments and horizontal regions) relations at grassroots level,the unequal power,responsibility and the blurred boundary between horizontal township and vertical department restrict the improvement of grassroots governance effectiveness.Therefore,it is an inevitable trend for the reform of the grassroots administrative system to tilt the grassroots governance power to the township and promote the implementation of the comprehensive administrative law enforcement power of the township.The essence of the localized allocation of law enforcement power is to enhance the grassroots governance capacity and strengthen the standardization of governance.However,whether the shift of grassroots law enforcement power from vertical departments to territorial allocation can improve governance performance is yet to be tested.In the empirical analysis of Y township,this paper finds that:(1)under the power allocation principle of“separation of investigation and punishment”,the special approval authority and local law enforcement authority are clarified,which makes the grassroots special governance present the way of vertical department approval and township local centralized law enforcement;(2)the interaction process between Tiao and Kuai shows a more diversified tendency,including the bottom-line principle of collaborative interaction,territorially-led fuzzy supervision and enforcement,and principled rigid enforcement.The localization of law enforcement rights is a beneficial exploration of the collaboration between Tiao and Kuai,but there are still structural dilemmas of unbalanced power,responsibility and benefit,and blurred boundaries in grassroots governance.Therefore,the government needs to coordinate the consistency of actions among multiple governance subjects,so that grassroots governance can be optimally allocated around local governance in township and promote the standardization and institutionalization grassroots government governance.