推进基层政府依法行政的障碍与对策研究
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摘要
依法行政是我国依法治国的核心与关键,是发展社会主义民主政治的必然要求,是建立社会主义市场经济体制的迫切需要,更是建立现代社会文明的重要标志。依法行政标志着中国的治国方略开始逐步纳入法治化轨道。推进依法行政,重点在基层,难点也在基层。基层政府作为我国行政体系中最小行政单位,是依法行政的最前沿基地。全国约有3.9万个基层政府,数百万基层工作人员,同人民群众联系最频繁、最直接。基层政府能否切实做到依法行政,很大程度上决定着政府依法行政的整体水平和法治政府建设的整体进程。在建设社会主义新农村和推进社会主义民主与法治的进程中,大力推进基层政府依法行政具有重大理论意义和现实意义：是深入贯彻落实依法治国方略,实现基层法治的关键；是建设社会主义新农村的重要保障；是建设“廉洁、勤政、务实、高效”政府的根本要求；是夯实党的执政基础的需要。由于我国目前农村相关立法的相对滞后,基层干部群众法律意识的淡薄,传统、习惯、乡村现实的宗法型社会关系格局和宗法家族文化氛围的影响,对基层干部行政行为监控体系的不完善等诸多因素的存在,严重制约了我国基层政府依法行政的进程和实际绩效。因此,如何解决这些问题,大力推进我国基层法治建设,成为提高我国的法治水平,促进和谐社会建设的重要任务和目标。
本文从依法行政的渊源、内涵、要求入手,结合新形势下基层政府对依法行政的迫切要求,以山东省青岛市A镇政府为例,从立法、执法、法治环境、法治监督等方面,深入分析了当前基层政府依法行政过程中所面临的突出问题,认为造成基层政府依法行政难题的原因是多方面的,既有立法质量方面的,也有现行执法体制制约；既有人的主观因素,也有客观环境的因素。在这些因素合力作用下,导致基层政府依法行政面临诸多问题。在上述分析基础上,文章提出了具体应对之策,主要包括：提高基层行政立法质量；大力提高基层干部的法律意识和执法水平；完善基层政府行政决策机制；完善基层政府依法行政的体制,完善考核机制,营造依法行政的良好社会氛围；强化行政执法的力度,严厉打击宗派黑恶势力,净化依法行政的软环境；改革行政监督体制,使监督真正发挥应有作用；增强社会自治功能,建立政府行政管理与基层群众自治有效衔接和良性互动的机制。
Administration by law is the core and key of ruling by law in our country, a must to develop socialist democratic politics as well as the urgent requirement to build socialist market economic system. More important, it is a symbol of building modern civilization. It marks our country's state policies have been operating in a legal orbit. The significance and the nodus of promoting administration by law both lie in grass-root areas. As the smallest administrative units in our country's administrative system, grass-root governments are the most forward fronts to carry out administration by law. There are 39,000 such governments and millions of public servants who are keeping in touch with the masses mostly and directly in the whole country. Whether the grass-root governments can administrate by law matters to the whole level of our country's administration by law and the whole process of building a country under the rule of law, to a large extent. It is of great significance to promote administration by law in the grass-root governments in the process of building the new socialist countryside and developing socialist democracy and governing by law both theoretically and practically:the key to carry out the strategy of governing the country by law and to realize administration by law in the countryside; the guarantee of solving the "Three Rural Issues "(issues of agriculture, farmer and rural area) to build new socialist countryside; the fundamental requirement to construct a government of "uncorrupted, diligent, pragmatic and efficient"; the realistic need to consolidate ruling base of the Party as well. However, reasons existing that restrict the development and the performance of administration by law in the local governments are as follows:the lag-behind of the present legislation of rural grassroots, the lack of legal consciousness of the cadres and the masses in rural areas, the culture atmosphere of tradition, habit and the patriarchal clan social structure in grassroots, and the imperfect monitoring system of administrative behavior of the rural governments, etc. Therefore, now our urgent task and goal is to solve these problems in order to complete the legal construction in the rural areas, to improve the level of ruling by law in our country and to promote the construction of a harmonious society.
Observing the new urgent demand of administrating by law in the grass-root government, the author of this paper, taking the instance of A town in Qingdao, China, from the origin, the connotation and the requirement of administration by law, analyzes the serious problems caused in the process of it from the perspective of legislation, enforcement, environment and supervision of law, etc. The thesis holds that reasons for difficult carrying-out of administration according to law are various, such as legislation loophole, current enforcement system restriction, including both subjective and objective factors. These matters altogether add difficulties to the administration by law for the grass-root governments. Based on analysis above, some measures we should take are presented:strengthen and improve the basic quality of administrative legislation; enhance the legal consciousness and enforcement level of grassroots cadres; complete the administrative decision-making mechanism of local government; cultivate an excellent social atmosphere for law enforcement by consummate the local administrative law-system and caders-checking system; crack down the black evil forces of sectarian severely to purify the soft environment of law-based administration; reform the administrative supervision system to make best use of it; finally, enhance the social self-governing function and establish a virtuous interaction mechanism which is closely connected between administration of governments and self-management of the populous.
本文从依法行政的渊源、内涵、要求入手,结合新形势下基层政府对依法行政的迫切要求,以山东省青岛市A镇政府为例,从立法、执法、法治环境、法治监督等方面,深入分析了当前基层政府依法行政过程中所面临的突出问题,认为造成基层政府依法行政难题的原因是多方面的,既有立法质量方面的,也有现行执法体制制约；既有人的主观因素,也有客观环境的因素。在这些因素合力作用下,导致基层政府依法行政面临诸多问题。在上述分析基础上,文章提出了具体应对之策,主要包括：提高基层行政立法质量；大力提高基层干部的法律意识和执法水平；完善基层政府行政决策机制；完善基层政府依法行政的体制,完善考核机制,营造依法行政的良好社会氛围；强化行政执法的力度,严厉打击宗派黑恶势力,净化依法行政的软环境；改革行政监督体制,使监督真正发挥应有作用；增强社会自治功能,建立政府行政管理与基层群众自治有效衔接和良性互动的机制。
Administration by law is the core and key of ruling by law in our country, a must to develop socialist democratic politics as well as the urgent requirement to build socialist market economic system. More important, it is a symbol of building modern civilization. It marks our country's state policies have been operating in a legal orbit. The significance and the nodus of promoting administration by law both lie in grass-root areas. As the smallest administrative units in our country's administrative system, grass-root governments are the most forward fronts to carry out administration by law. There are 39,000 such governments and millions of public servants who are keeping in touch with the masses mostly and directly in the whole country. Whether the grass-root governments can administrate by law matters to the whole level of our country's administration by law and the whole process of building a country under the rule of law, to a large extent. It is of great significance to promote administration by law in the grass-root governments in the process of building the new socialist countryside and developing socialist democracy and governing by law both theoretically and practically:the key to carry out the strategy of governing the country by law and to realize administration by law in the countryside; the guarantee of solving the "Three Rural Issues "(issues of agriculture, farmer and rural area) to build new socialist countryside; the fundamental requirement to construct a government of "uncorrupted, diligent, pragmatic and efficient"; the realistic need to consolidate ruling base of the Party as well. However, reasons existing that restrict the development and the performance of administration by law in the local governments are as follows:the lag-behind of the present legislation of rural grassroots, the lack of legal consciousness of the cadres and the masses in rural areas, the culture atmosphere of tradition, habit and the patriarchal clan social structure in grassroots, and the imperfect monitoring system of administrative behavior of the rural governments, etc. Therefore, now our urgent task and goal is to solve these problems in order to complete the legal construction in the rural areas, to improve the level of ruling by law in our country and to promote the construction of a harmonious society.
Observing the new urgent demand of administrating by law in the grass-root government, the author of this paper, taking the instance of A town in Qingdao, China, from the origin, the connotation and the requirement of administration by law, analyzes the serious problems caused in the process of it from the perspective of legislation, enforcement, environment and supervision of law, etc. The thesis holds that reasons for difficult carrying-out of administration according to law are various, such as legislation loophole, current enforcement system restriction, including both subjective and objective factors. These matters altogether add difficulties to the administration by law for the grass-root governments. Based on analysis above, some measures we should take are presented:strengthen and improve the basic quality of administrative legislation; enhance the legal consciousness and enforcement level of grassroots cadres; complete the administrative decision-making mechanism of local government; cultivate an excellent social atmosphere for law enforcement by consummate the local administrative law-system and caders-checking system; crack down the black evil forces of sectarian severely to purify the soft environment of law-based administration; reform the administrative supervision system to make best use of it; finally, enhance the social self-governing function and establish a virtuous interaction mechanism which is closely connected between administration of governments and self-management of the populous.
引文
①王名扬.法国行政法.北京：北京大学出版社,2007.58
②[德]迈耶.德国行政法(刘飞译).北京：商务印书馆出版社,2002.13～14
③王名扬.英国行政法.北京：北京大学出版社,2007.69
④王名扬.美国行政法.北京：中国法制出版社,1995.129
①杨建顺.日本行政法通论.北京：中国法制出版社,1998.23
①王名扬.法国行政法,北京：北京大学出版社,2007,196～198
②[德]平纳德.德国普通行政法(朱林译),北京：中国政法大学出版社,1999.58
②[美]富勒.法律的道德性(郑戈译),北京：商务印书馆,2005,25～56
①王名扬.英国行政法,北京：中国政法大学出版社,1987.151～177
②[日]和田英夫.现代行政法(倪建民,潘世圣译),北京：中国广播电视出版社,1993.27～28
③[日]室井力.日本现代行政法(吴微译),北京：中国政法大学出版社,1995.21
④应松年.行政法新论,北京：中国方正出版社,1999.58
⑤姜伟.法学家谈”依法行政”.人民日报(第五版),2005-03-11
⑥姜明安.行政法和行政诉讼法.北京：北京大学出版社,高等教育出版社,2007.263
①刘翰.依法行政论.北京：社会科学文献出版社,1993.32
②季正发. 依法行政的由来、概念和理论内涵. 中国政府法制信息网.http://www.chinalaw.gov.cn/article/dfxx/dffzxx/jl/200303/20030300048809.shtml访问时间：2010-2-2
①毛泽东.关于中华人民共和国宪法草案.1954-06-14.http://www.people.com.cn/GB/shizheng/8198/30446/30452/2196155.html,访问时间：2010-2-3
②全国人大常委会办公厅研究室.人民代表大会制度建设四十年.北京：中国民主法制出版社,1991.102
①邓小平.邓小平文选(第二卷).北京：人民出版社,1994.146～147
②张正德,况由志.依法行政的理念与实践冲突研究.重庆：重庆出版社,2004.56
③孙秀岭.治国者必先受治于法.大众日报,2004-04-22
①付思明.中国依法行政的理论与实践.北京：中国检察出版社,2002.286
①刘丹.法治政府-基本理念与框架.北京：中国法制出版社,2008.157
②杨海坤.实现宪政目标下的中国行政法治.法学论坛,2005(2).28
①徐晓明.谈谈基层政府依法行政.商业经济,2009(4).31
①魏继华.农村基层政府依法行政问题探析.甘肃政法成人教育学院学报,2007(6).42
②黄豁.张先国.段博.中国基层法院面临民告官案件大幅增长诉讼压力.瞭望新闻周刊,2006(17).11
①朱新美.“收玉米须办证”是荒唐的行政越权.上海法治报,2007-11-07
①邓小平.邓小平文选(第二卷).北京：人民出版社,1994.251
②吕红平.农村家族问题与现代化.河北：河北大学出版社,2001.75
③费孝通.乡土中国.北京：三联书店出版社,1985.35
①压力性体制是指在中国政治体系中,地方政府为了加快本地社会经济发展、完成上级下达的各项命令任务而构建的一套把行政命令与物质刺激结合起来的机制组合。
①卞军民.基层推进依法行政工作中的问题与对策.杭州研究,2007(3).17
①王帝.探索执法监督新途径.推进依法行政工作.党史纵横,2007(8).22
①苏力.送法下乡-中国基层司法制度研究.北京：中国政法大学出版社,2002.91
①姜明安.行政法与行政诉讼法.北京：北京大学出版社.高等教育出版社,2007.84
①韩健.我国依法行政的基本理论与实施.四川：西南交大出版社,2006.7.122
①姜明安.行政法与行政诉讼法.北京：北京大学出版社.高等教育出版社,2007.144
①杨建顺.行政裁量的运作及其监督.法学研究,2004(1).26
②杨海坤.李兵.基层政府推进依法行政的成效与问题分析.北方法学,2009(2).15
①徐晓明.谈谈基层政府依法行政,商业经济,2009(4).31
①姚锐敏.略论政策对法律权威的负面影响.南京社会科学,1994.(5).42
①胡明.陈玲芳.试析我国基层政府依法行政的制度瓶颈.九江学院学报(社会科学版),2006(3)
①王帝.探索执法监督新途径,推进依法行政工作.党史纵横,2007(8).17
②章剑生.现代行政法基本理论.北京：法律出版社,2008.214
①张德友.翟印礼.法与农村社会的变迁.北京：北京人民出版社，2007.224
②湛中乐.傅思明.依法行政培训教程.北京：中共中央党校出版社，2004.205
[1]王名扬.法国行政法.北京：北京大学出版社,2007.58
[2][德]迈耶.德国行政法(刘飞译).北京：商务印书馆出版社,2002.13～14
[3]王名扬.英国行政法.北京：北京大学出版社,2007.69
[4]王名扬.美国行政法.北京：中国法制出版社,1995.129
[5]杨建顺.日本行政法通论.北京：中国法制出版社,1998.23
[6]王名扬.法国行政法,北京：北京大学出版社,2007,196～198
[7][德]平纳德.德国普通行政法(朱林译),北京：中国政法大学出版社,1999.58
[8][美]富勒.法律的道德性(郑戈译),北京：商务印书馆,2005,25～56
[9]王名扬.英国行政法,北京：中国政法大学出版社,1987.151～177
[10][日]和田英夫.现代行政法(倪建民,潘世圣译),北京：中国广播电视出版社,1993.27～28
[11][日]室井力.日本现代行政法(吴微译),北京：中国政法大学出版社,1995.21
[12]应松年.行政法新论,北京：中国方正出版社,1999.58
[13]姜伟.法学家谈“依法行政”.人民日报(第五版),2005-03-11
[14]姜明安.行政法和行政诉讼法.北京：北京大学出版社,高等教育出版社,2007.263
[15]刘翰.依法行政论.北京：社会科学文献出版社,1993.32
[16]季正发.依法行政的由来、概念和理论内涵.中国政府法制信息网.http://www.chinalaw.gov.cn/article/dfxx/dffzxx/jl/200303/20030300048809.shtml访问时间：2010-2-2
[17]毛泽东.关于中华人民共和国宪法草案1954-06-14.http://www.people.com.cn/GB/ shizheng/8198/30446/30452/2196155.html,访问时间：2010-2-3
[18]全国人大常委会办公厅研究室.人民代表大会制度建设四十年.北京：中国民主法制出版社,1991.102
[19]邓小平.邓小平文选(第二卷).北京：人民出版社,1994.146～147
[20]张正德,况由志.依法行政的理念与实践冲突研究.重庆：重庆出版社,2004.56
[21]孙秀岭.治国者必先受治于法.大众日报,2004-04-22
[22]付思明.中国依法行政的理论与实践.北京：中国检察出版社,2002.286
[23]刘丹.法治政府-基本理念与框架.北京：中国法制出版社,2008.157
[24]杨海坤.实现宪政目标下的中国行政法治.法学论坛,2005(2)
[25]徐晓明.谈谈基层政府依法行政.商业经济,2009(4)
[26]魏继华.农村基层政府依法行政问题探析.甘肃政法成人教育学院学报,2007(6)
[27]黄豁.张先国.段博.中国基层法院面临民告官案件大幅增长诉讼压力.瞭望新闻周刊,2006(17)
[28]朱新美,”收玉米须办证”是荒唐的行政越权.上海法治报,2007-11-07
[29]邓小平.邓小平文选(第二卷).北京：人民出版社,1994.251
[30]吕红平.农村家族问题与现代化.河北：河北大学出版社,2001.75
[31]费孝通.乡土中国.北京：三联书店出版社,1985.35
[32]卞军民.基层推进依法行政工作中的问题与对策.杭州研究,2007(3)
[33]王帝.探索执法监督新途径.推进依法行政工作.党史纵横,2007(8)
[34]苏力.送法下乡-中国基层司法制度研究.北京：中国政法大学出版社,2002.91
[35]姜明安.行政法与行政诉讼法.北京：北京大学出版社.高等教育出版社,2007.84
[36]韩健.我国依法行政的基本理论与实施.四川：西南交大出版社,2006.7
[37]姜明安.行政法与行政诉讼法.北京：北京大学出版社.高等教育出版社,2007.144
[38]杨建顺.行政裁量的运作及其监督.法学研究,2004(1)
[39]杨海坤.李兵.基层政府推进依法行政的成效与问题分析.北方法学,2009(2)
[40]徐晓明.谈谈基层政府依法行政,商业经济,2009(4)
[41]姚锐敏.略论政策对法律权威的负面影响.南京社会科学,1994.(5)
[42]胡明.陈玲芳.试析我国基层政府依法行政的制度瓶颈.九江学院学报(社会科学版),2006(3)
[43]王帝.探索执法监督新途径,推进依法行政工作.党史纵横,2007(8)
[44]章剑生.现代行政法基本理论.北京：法律出版社,2008.214
[45]张德友.翟印礼.法与农村社会的变迁.北京：北京人民出版社,2007.224
[46]湛中乐.傅思明.依法行政培训教程.北京：中共中央党校出版社,2004.205
②[德]迈耶.德国行政法(刘飞译).北京：商务印书馆出版社,2002.13～14
③王名扬.英国行政法.北京：北京大学出版社,2007.69
④王名扬.美国行政法.北京：中国法制出版社,1995.129
①杨建顺.日本行政法通论.北京：中国法制出版社,1998.23
①王名扬.法国行政法,北京：北京大学出版社,2007,196～198
②[德]平纳德.德国普通行政法(朱林译),北京：中国政法大学出版社,1999.58
②[美]富勒.法律的道德性(郑戈译),北京：商务印书馆,2005,25～56
①王名扬.英国行政法,北京：中国政法大学出版社,1987.151～177
②[日]和田英夫.现代行政法(倪建民,潘世圣译),北京：中国广播电视出版社,1993.27～28
③[日]室井力.日本现代行政法(吴微译),北京：中国政法大学出版社,1995.21
④应松年.行政法新论,北京：中国方正出版社,1999.58
⑤姜伟.法学家谈”依法行政”.人民日报(第五版),2005-03-11
⑥姜明安.行政法和行政诉讼法.北京：北京大学出版社,高等教育出版社,2007.263
①刘翰.依法行政论.北京：社会科学文献出版社,1993.32
②季正发. 依法行政的由来、概念和理论内涵. 中国政府法制信息网.http://www.chinalaw.gov.cn/article/dfxx/dffzxx/jl/200303/20030300048809.shtml访问时间：2010-2-2
①毛泽东.关于中华人民共和国宪法草案.1954-06-14.http://www.people.com.cn/GB/shizheng/8198/30446/30452/2196155.html,访问时间：2010-2-3
②全国人大常委会办公厅研究室.人民代表大会制度建设四十年.北京：中国民主法制出版社,1991.102
①邓小平.邓小平文选(第二卷).北京：人民出版社,1994.146～147
②张正德,况由志.依法行政的理念与实践冲突研究.重庆：重庆出版社,2004.56
③孙秀岭.治国者必先受治于法.大众日报,2004-04-22
①付思明.中国依法行政的理论与实践.北京：中国检察出版社,2002.286
①刘丹.法治政府-基本理念与框架.北京：中国法制出版社,2008.157
②杨海坤.实现宪政目标下的中国行政法治.法学论坛,2005(2).28
①徐晓明.谈谈基层政府依法行政.商业经济,2009(4).31
①魏继华.农村基层政府依法行政问题探析.甘肃政法成人教育学院学报,2007(6).42
②黄豁.张先国.段博.中国基层法院面临民告官案件大幅增长诉讼压力.瞭望新闻周刊,2006(17).11
①朱新美.“收玉米须办证”是荒唐的行政越权.上海法治报,2007-11-07
①邓小平.邓小平文选(第二卷).北京：人民出版社,1994.251
②吕红平.农村家族问题与现代化.河北：河北大学出版社,2001.75
③费孝通.乡土中国.北京：三联书店出版社,1985.35
①压力性体制是指在中国政治体系中,地方政府为了加快本地社会经济发展、完成上级下达的各项命令任务而构建的一套把行政命令与物质刺激结合起来的机制组合。
①卞军民.基层推进依法行政工作中的问题与对策.杭州研究,2007(3).17
①王帝.探索执法监督新途径.推进依法行政工作.党史纵横,2007(8).22
①苏力.送法下乡-中国基层司法制度研究.北京：中国政法大学出版社,2002.91
①姜明安.行政法与行政诉讼法.北京：北京大学出版社.高等教育出版社,2007.84
①韩健.我国依法行政的基本理论与实施.四川：西南交大出版社,2006.7.122
①姜明安.行政法与行政诉讼法.北京：北京大学出版社.高等教育出版社,2007.144
①杨建顺.行政裁量的运作及其监督.法学研究,2004(1).26
②杨海坤.李兵.基层政府推进依法行政的成效与问题分析.北方法学,2009(2).15
①徐晓明.谈谈基层政府依法行政,商业经济,2009(4).31
①姚锐敏.略论政策对法律权威的负面影响.南京社会科学,1994.(5).42
①胡明.陈玲芳.试析我国基层政府依法行政的制度瓶颈.九江学院学报(社会科学版),2006(3)
①王帝.探索执法监督新途径,推进依法行政工作.党史纵横,2007(8).17
②章剑生.现代行政法基本理论.北京：法律出版社,2008.214
①张德友.翟印礼.法与农村社会的变迁.北京：北京人民出版社，2007.224
②湛中乐.傅思明.依法行政培训教程.北京：中共中央党校出版社，2004.205
[1]王名扬.法国行政法.北京：北京大学出版社,2007.58
[2][德]迈耶.德国行政法(刘飞译).北京：商务印书馆出版社,2002.13～14
[3]王名扬.英国行政法.北京：北京大学出版社,2007.69
[4]王名扬.美国行政法.北京：中国法制出版社,1995.129
[5]杨建顺.日本行政法通论.北京：中国法制出版社,1998.23
[6]王名扬.法国行政法,北京：北京大学出版社,2007,196～198
[7][德]平纳德.德国普通行政法(朱林译),北京：中国政法大学出版社,1999.58
[8][美]富勒.法律的道德性(郑戈译),北京：商务印书馆,2005,25～56
[9]王名扬.英国行政法,北京：中国政法大学出版社,1987.151～177
[10][日]和田英夫.现代行政法(倪建民,潘世圣译),北京：中国广播电视出版社,1993.27～28
[11][日]室井力.日本现代行政法(吴微译),北京：中国政法大学出版社,1995.21
[12]应松年.行政法新论,北京：中国方正出版社,1999.58
[13]姜伟.法学家谈“依法行政”.人民日报(第五版),2005-03-11
[14]姜明安.行政法和行政诉讼法.北京：北京大学出版社,高等教育出版社,2007.263
[15]刘翰.依法行政论.北京：社会科学文献出版社,1993.32
[16]季正发.依法行政的由来、概念和理论内涵.中国政府法制信息网.http://www.chinalaw.gov.cn/article/dfxx/dffzxx/jl/200303/20030300048809.shtml访问时间：2010-2-2
[17]毛泽东.关于中华人民共和国宪法草案1954-06-14.http://www.people.com.cn/GB/ shizheng/8198/30446/30452/2196155.html,访问时间：2010-2-3
[18]全国人大常委会办公厅研究室.人民代表大会制度建设四十年.北京：中国民主法制出版社,1991.102
[19]邓小平.邓小平文选(第二卷).北京：人民出版社,1994.146～147
[20]张正德,况由志.依法行政的理念与实践冲突研究.重庆：重庆出版社,2004.56
[21]孙秀岭.治国者必先受治于法.大众日报,2004-04-22
[22]付思明.中国依法行政的理论与实践.北京：中国检察出版社,2002.286
[23]刘丹.法治政府-基本理念与框架.北京：中国法制出版社,2008.157
[24]杨海坤.实现宪政目标下的中国行政法治.法学论坛,2005(2)
[25]徐晓明.谈谈基层政府依法行政.商业经济,2009(4)
[26]魏继华.农村基层政府依法行政问题探析.甘肃政法成人教育学院学报,2007(6)
[27]黄豁.张先国.段博.中国基层法院面临民告官案件大幅增长诉讼压力.瞭望新闻周刊,2006(17)
[28]朱新美,”收玉米须办证”是荒唐的行政越权.上海法治报,2007-11-07
[29]邓小平.邓小平文选(第二卷).北京：人民出版社,1994.251
[30]吕红平.农村家族问题与现代化.河北：河北大学出版社,2001.75
[31]费孝通.乡土中国.北京：三联书店出版社,1985.35
[32]卞军民.基层推进依法行政工作中的问题与对策.杭州研究,2007(3)
[33]王帝.探索执法监督新途径.推进依法行政工作.党史纵横,2007(8)
[34]苏力.送法下乡-中国基层司法制度研究.北京：中国政法大学出版社,2002.91
[35]姜明安.行政法与行政诉讼法.北京：北京大学出版社.高等教育出版社,2007.84
[36]韩健.我国依法行政的基本理论与实施.四川：西南交大出版社,2006.7
[37]姜明安.行政法与行政诉讼法.北京：北京大学出版社.高等教育出版社,2007.144
[38]杨建顺.行政裁量的运作及其监督.法学研究,2004(1)
[39]杨海坤.李兵.基层政府推进依法行政的成效与问题分析.北方法学,2009(2)
[40]徐晓明.谈谈基层政府依法行政,商业经济,2009(4)
[41]姚锐敏.略论政策对法律权威的负面影响.南京社会科学,1994.(5)
[42]胡明.陈玲芳.试析我国基层政府依法行政的制度瓶颈.九江学院学报(社会科学版),2006(3)
[43]王帝.探索执法监督新途径,推进依法行政工作.党史纵横,2007(8)
[44]章剑生.现代行政法基本理论.北京：法律出版社,2008.214
[45]张德友.翟印礼.法与农村社会的变迁.北京：北京人民出版社,2007.224
[46]湛中乐.傅思明.依法行政培训教程.北京：中共中央党校出版社,2004.205