地方综合执法改革的“内卷化”风险及整体性韧性治理研究

Research on theRisk of “Involution” and Holistic Resilient Governance in Local Comprehensive Law Enforcement Reforms

推进综合执法改革是实现行政执法体制创新、政府治理能力现代化的重要举措,是建设法治政府的重要一环。在当前深化综合执法改革阶段,依循政策推进的地方综合执法改革实践受制于诸多主客观因素,地方政府所处的改革生态发生了革命性变化,暴露出其所不能以及乏力的“非韧性”症状,出现了“有改革无变革”的叠变性“内卷化”风险。研究发现刚性过度扩张的环境中改革预期动力消解,“内卷化”风险在改革过程、结果效能、改革效率、边际效益等层面上显现,改革原有政策设计成效不显著。从生成逻辑看,科层制与属地压力叠加生成改革约束、治理机制缺位引发改革结构分散、非常规治理工具依赖演化脆弱系统、地方行为主体异质等共同形塑了“内卷化”风险。由此,在复杂多变环境中实现对综合执法改革“内卷化”风险的因应治理,需在适应地方改革情境张力的基础上,着眼于整体性和注重包容调适的推进路径,系统构建集治理主体、制度框架、运作机制、治理技术、结构功能于一体的整体性韧性治理策略,推进地方政府组织结构的多层次、立体式构造,增强其承载改革的组织韧性,进而实现对综合执法改革“内卷化”风险的治理与规避。

Advancing comprehensive law enforcement reform is a crucial step towards innovating the administrative law enforcement system and modernizing government governance capabilities.This is pivotal for building a law-based government.Currently,during the new phase of deepening comprehensive law enforcement reforms,local enforcement practices driven by policies face various subjective and objective constraints.The local government's reform ecosystem has undergone revolutionary changes,revealing symptoms of"non-resilience,"leading to the risk of"involution,"where reform does not bring about transformation.Research indicates that in an environment of excessive rigidity,reform expectations diminish,and the risk of involution becomes evident in the process,outcomes,effectiveness,reform efficiency and marginal benefits,rendering the original policy designs ineffective.From the perspective of generating logic,the convergence of bureaucratic pressure and territorial stress collectively shapes the constraints of reform.The absence of governance mechanisms results in fragmented reform structures and reliance on unconventional governance tools evolves into fragile systems and heterogeneous local actors all contribute to the risk of involution.Thus,to address and manage the risk of involution in comprehensive law enforcement reform in a complex and changing environment,it is necessary to adapt to the local reform context and focus on an integrated,inclusive,and adaptive approach.This includes systematically constructing a holistic resilience governance strategy that combines governance subjects,institutional frameworks,operational mechanisms,governance technologiesand structural functions,promoting a multi-level,three-dimensional organizational structure for local governments.This approach aims to enhance the organizational resilience to support reform,thereby managing and mitigating the risks of involution in comprehensive law enforcement reform.