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基层执法的“塔西佗陷阱”如何破解
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Topic: 基层执法的“塔西佗陷阱”如何破解 (Read 94 times)
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基层执法的“塔西佗陷阱”如何破解
January 30, 2018, 03:21:19 AM
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1月24日,云南鲁甸县民警在处置一起群体性事件时,遇到不法分子围殴。辖区派出所所长为了平息事态,向现场围观群众下跪,被称为“下跪执法”。此前一天,1月23日,郑州航空港区城管人员在现场制止安装广告牌时,抽走施工人员的梯子,造成一人坠亡。“城管抽梯”为基层恶劣执法又添一恶例。
两起广受关注的极端事件,反映的都是基层执法者的行为处境:一个软弱妥协,面对不理性的群众缺乏办法,用自损尊严的做法试图平息事态;一个强硬恶劣,甚至不拿生命当回事,造成严重后果。两起事件尽管一硬一软,但却是一体两面,反映的是同一个根本问题,那就是基层执法公信力的缺乏。没有公信力所以无法用合法的手段执法,最终依赖于暴力威慑,没有公信力所以无法让民众认可执法,最终又陷入“下跪执法”式的委曲求全。这何尝不是另一种“塔西佗陷阱”。
执法公信力的缺失并不是无来由的,首先是权责不清。执法权责不清会导致该管的没管好,不该管的又乱管,这其中表现比较明显的当属城管。很长一段时间以来,城市管理人员急速扩张,管的范围越来越宽,但城管地位和合理性问题一直没有完全解决,甚至上级主管部门和所执之法都没有明确统一。这一方面造成城管执法缺乏强制手段,面对抵制和对抗办法不多;另一方面也导致城管自由裁量权过大,选择性执法问题突出。这是一个问题的两面,城管执法中的暗箱操作和矛盾冲突,大多由此而来。
其次是约束不强。约束不强会导致执法力量过度执法,违规执法,甚至暴力执法、野蛮执法。警察作为基层唯一可合法使用暴力的队伍,没有强有力的约束和监督,暴力的过度使用尽管在执法效率上事半功倍,然而在执法效果上却是大打折扣。暴力执法并不能树立法律的威严,相反是法律信仰的流失。民众接受的是暴力恐惧下的法律,而并非内心遵守的社会公约,最终的结果要么是更强有力的暴力,要么是鲁甸派出所那样“跪地求饶”。
第三则是执法不公。执法环境最大的敌人,是执法不公平、不作为和滥用自由裁量权,河南郑州城管抽梯执法所导致的舆情,不仅仅只是因为城管之恶,更是警方再为拘押负有直接责任的涉事城管队员的情况下,立即羁押了安装广告牌的文印店老板,被舆论质疑执法不公。执法不公意味着法律失去了作为社会最大公约数的基础,民众不再信仰法律,执法者也无法继续使用这套公约来约束民众,执法者失去公信力,就会催生不讲规则的执法对象。如果不幸形成恶性循环,执法者和执法对象,都没有安全感和被尊重感。当法律不被信仰,受损害的不仅仅是广大民众,更是广大执法者自身。
近日,中共中央、国务院发出《关于开展扫黑除恶专项斗争的通知》,其中指出把扫黑除恶与反腐败斗争和基层“拍蝇”结合起来,深挖黑恶势力“保护伞”。这恰恰反映了目前基层执法的一种非正常状态,成为黑恶势力“保护伞”的执法力量何来公信力一说。
我国正在深入贯彻全面依法治国战略,打造全社会信仰法律、尊重法律的真正的法治环境。真正的法治环境下,执法者授权明确、恪守边界、接受监督,这是基本的要求。在此之上,才是文明执法、人性化执法:在严格公正执法的前提下,还要尊重人权和个人尊严,照顾特殊群体的感受。
这是任何社会对执法者基本的要求,而且法律有明确规定,中央有明确要求。做到这些,基层执法才能告别或者暴力、或者无力的局面,形成正常的执法环境。
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