我国城市管理执法体制改革新探——基于胡德科层制控制理论的分析
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摘要
行政执法体制改革的推行已二十年有余,虽然成就显著,但一些长期困扰城管执法的问题仍未得到解决。关于城管执法问题的研究不计其数,但鲜有学者探讨我国城管执法体制内部的控制模式。胡德的科层制控制理论作为新公共管理理论体系的重要组成部分,在研究政府体制内部的控制模式方面具有独特的优势。通过以胡德的科层制控制理论为分析工具对我国城管执法体制的探究可以发现,我国城管执法体制内的控制模式表现为名义上占主导地位的监督型控制,作为实质核心控制机制的互惠型控制,并伴随着不同程度的随机型控制,并由此导致了城管执法体系出现的一系列问题,包括城管执法地位的合理性和合法性地位问题,不同层级的目标冲突问题以及有关自由裁量使用失当的问题。因此,未来我国城管执法体制改革可着眼于以下几方面:宏观上完善控制机制;中观上发挥互惠型控制的优势,避免互惠型控制的消极作用;微观上把握正视随机型控制对城管执法的影响。
The implementation of the administrative law enforcement system reform has been more than20 years. Despite its achievements, the reform has not completely addressed the problems deeply rooted in the law enforcement of urban management. Whereas numerous studies have focused on the issues in the law enforcement of urban management, few of them discussed the power control pattern within the law enforcement system of urban management. Having been regarded as an important part of the theories of New Public Management, the theory of bureaucratic control first proposed by Christopher Hood is distinct in explaining the control pattern inside government system. With the assistance of Hood's bureaucratic control theory, this article found that the power control pattern within the current law enforcement system of urban management was Oversight in its form, Mutuality in its substance, accompanied with contingent Contrived randomness. This internal power control pattern led to a series of problems within the law enforcement system of urban management, including the legitimacy of the urban management law enforcement, target conflicts among different levels of government bodies, and improper use of discretion during the law enforcement. Thus,in the future, the reform of China's urban management law enforcement system can focus on the following aspects: improving the mechanism of bureaucratic control from macro perspective; taking advantage of the strength while mitigating the negative impacts caused by the weakness of Mutuality from meso perspective;and properly dealing with the effect of Contrived randomness on the law enforcement of urban management from micro perspective.
The implementation of the administrative law enforcement system reform has been more than20 years. Despite its achievements, the reform has not completely addressed the problems deeply rooted in the law enforcement of urban management. Whereas numerous studies have focused on the issues in the law enforcement of urban management, few of them discussed the power control pattern within the law enforcement system of urban management. Having been regarded as an important part of the theories of New Public Management, the theory of bureaucratic control first proposed by Christopher Hood is distinct in explaining the control pattern inside government system. With the assistance of Hood's bureaucratic control theory, this article found that the power control pattern within the current law enforcement system of urban management was Oversight in its form, Mutuality in its substance, accompanied with contingent Contrived randomness. This internal power control pattern led to a series of problems within the law enforcement system of urban management, including the legitimacy of the urban management law enforcement, target conflicts among different levels of government bodies, and improper use of discretion during the law enforcement. Thus,in the future, the reform of China's urban management law enforcement system can focus on the following aspects: improving the mechanism of bureaucratic control from macro perspective; taking advantage of the strength while mitigating the negative impacts caused by the weakness of Mutuality from meso perspective;and properly dealing with the effect of Contrived randomness on the law enforcement of urban management from micro perspective.
引文
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[23]Hong Gao&Adam Tyson.(2018).Power List Refo rm:A New Constraint Mechanism for Administrative Powers in China,Asian Studies Review,no.1,pp.11.
[24]Andrew,Mertha,(2009).‘Fragmented Authoritarianism 2.0’:Political Pluralization in the Chinese Policy Process,China Quarterly,no.200,pp.1012.
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[27]张步峰,熊文钊.城市管理综合行政执法的现状、问题与对策[J].中国行政管理,2014,(7):39-42.
[28]王敬波.论我国城管执法体制改革及其法治保障[J].行政法学研究,2015,(2):16-22.
[29]周黎安.中国地方官员的晋升锦标赛模式研究[J].经济研究,2007,(7):36-50.
[30]岳书光.城管执法冲突何以形成---基于嵌入式执法的分析[J].中国行政管理,2017,(5):32-38.
[32]杨小军.深入推进城管执法体制改革研究[J].行政法学研究,2016,(5):3-13.
[33]罗文.城管执法迎来发展新局面---从河南省城市管理综合行政执法体制现状看发展前景[J].行政科学论坛,2016,(4):6-9.
[34]洛克.政府论:下篇[M].北京:商务印书馆,1964:98-99.
[35]郑宁波,王周户.论城管综合行政执法体制的缺陷与完善[J].西北大学学报(哲学社会科学版),2017,(1):70-76.
[36]Lipsky.(1980).Street-level Bureaucracy:Dilemmas of the Individual in Public Services,New York,Russell Sage Foundation.
[37]Niskanen,W.(1971).Bureaucracy and Representative Government,Hawthorne,N.Y:Aldine de Gruyter.
[38]张永海,郭丽芳.行政处罚法实务指导[M].北京:中国法制出版社,2008:155.
[39]陈碧红.城管行政自由裁量权失控的现状及原因分析[J].政法学刊,2014,(3):15-19.
[2]梁彩虹.行政争议法律援助:城管[M].北京:中国法制出版社,2006:37-38.
[3]Mei CQ,Pearson MM.2014.Killing a chicken to scare the monkeys?China Journal,no.72,pp.75-97.
[4]中共中央国务院关于深入推进城市执法体制改革改进城市管理工作的指导意见[EB/OL].http://www.gov.cn/zhengce/2015-12/30/content_5029663.htm.
[5]珍妮特·V·登哈特,罗伯特·B·登哈特.新公共服务:服务而不是掌舵(第3版)[M].丁煌译.北京:中国人民大学出版社,2016.
[6]Hood,C.,James,O.,Peters,B.G.,&Scott,C.(Eds.).(2004).Controlling modern government:Variety,commonality and change.Cheltenham,UK:Edward Elgar.:pp.5.
[7]Hood,C.,James,O.,Schott,C.,Jones,G.W.,Travers,T.(1999).Regulation inside government:waste watchers,quality police,and sleaze-busters.Oxford:Oxford University Press.pp.60-66
[8]McCubbins,M.D.,Schwartz,T.(1984).Congressional Oversight Overlooked:Police Patrols versus Fire Alarms.American Journal of Political Science,Vol.28,No.1,pp.165-179.
[9]Organization for Economic Cooperation and Development.(2005).Modernizing government:The way forward.Paris:Author.pp.175-180.
[10]Thompson,F.(1993).Matching responsibilities with tactics:Administrative Controls and Modern Government.Public Administration Review,no.53,pp.303-318.
[11]Litter,J.A.(1967).The Analysis of Organizations.New York:Wiley.pp.53.
[12]Peters,B.G.(2001).The politics of bureaucracy(5th ed.).London:Routledge.pp.299-346.
[13][21]Douglas,M.,&Wildavsky,A.(1982).Risk and culture:An essay on the selection of technological and environmental dangers.Berkeley:University of California Press.
[14][26]Hood,C.(1998).The Art of the State:Culture,Rhetoric and Public Management.Oxford:Clarendon Press.
[15]Watts,Ronald,L.(1999).Comparing Federal Systems.Montreal:McGill-Queen’s University Press.
[16]Simeon,R.(2001).Conclusion.In:Peter Meekison J(ed.)Intergovernmental Relations in Federal Countries:A Series of Essays on the Practice of Federal Governance.Ottawa:Forum of Federations,pp.91-105.
[17]Gormley,William Jr,T.(2006).Money and mandates:The politics of intergovernmental conflict.Publius,vol.36,no.4,pp.523-540.
[18]Braun,D(2003).Fiscal Policies in Federal States.Aldershot:Ashgate.
[19][20]Bolleyer,N.(2006).Intergovernmental arrangements in Spanish and Swiss federalism:The impact of power-concentrating and power-sharing executives on intergovernmental institutionalization.Regional and Federal Studies vol.16,no.4,pp.385-408.
[22]邵任薇.公共管理的文化理论---胡德的《国家的艺术:文化、修辞与公共管理》述评[J].东南学术,2009,(5):20-26.
[23]Hong Gao&Adam Tyson.(2018).Power List Refo rm:A New Constraint Mechanism for Administrative Powers in China,Asian Studies Review,no.1,pp.11.
[24]Andrew,Mertha,(2009).‘Fragmented Authoritarianism 2.0’:Political Pluralization in the Chinese Policy Process,China Quarterly,no.200,pp.1012.
[25][31]Braun,D.2008.Making federalism more efficient:A comparative assessment.Acta Politica,no.43,pp.4-25.
[27]张步峰,熊文钊.城市管理综合行政执法的现状、问题与对策[J].中国行政管理,2014,(7):39-42.
[28]王敬波.论我国城管执法体制改革及其法治保障[J].行政法学研究,2015,(2):16-22.
[29]周黎安.中国地方官员的晋升锦标赛模式研究[J].经济研究,2007,(7):36-50.
[30]岳书光.城管执法冲突何以形成---基于嵌入式执法的分析[J].中国行政管理,2017,(5):32-38.
[32]杨小军.深入推进城管执法体制改革研究[J].行政法学研究,2016,(5):3-13.
[33]罗文.城管执法迎来发展新局面---从河南省城市管理综合行政执法体制现状看发展前景[J].行政科学论坛,2016,(4):6-9.
[34]洛克.政府论:下篇[M].北京:商务印书馆,1964:98-99.
[35]郑宁波,王周户.论城管综合行政执法体制的缺陷与完善[J].西北大学学报(哲学社会科学版),2017,(1):70-76.
[36]Lipsky.(1980).Street-level Bureaucracy:Dilemmas of the Individual in Public Services,New York,Russell Sage Foundation.
[37]Niskanen,W.(1971).Bureaucracy and Representative Government,Hawthorne,N.Y:Aldine de Gruyter.
[38]张永海,郭丽芳.行政处罚法实务指导[M].北京:中国法制出版社,2008:155.
[39]陈碧红.城管行政自由裁量权失控的现状及原因分析[J].政法学刊,2014,(3):15-19.