地方政府合作中政治与法律结构耦合的生成——基于社会系统论的视角

随着我国区域发展战略的提出与城市群建设的发展，地方政府之间必须就公共事务展开横向合作。当前，地方政府合作面临着跨区域行政权行使缺乏法律依据、区域协同立法受权力配置制约、权力有效性缺失、政策执行不力等问题，根本原因在于政治与法律之间的相互掣肘。在系统与环境的解释框架下，政治与法律是各自以权力与立法为核心的功能分化的社会子系统，彼此之间以政府间行政协议为耦合渠道，在维持界分的同时又形成特定的联系，为解决系统内部的矛盾提供方法与途径。地方政府合作中政治与法律结构耦合关系的生成，为地方政府合作中行政权的运行提供了合理性依据，可以促进法制功能不断完善。

The Coupling of Political and Legal Structures in Local Government Cooperation in China——An Analysis form the Perspective of Social System Theory

China's local government cooperation is faced with the problems of lack of legal basis for the exercise of crossregion administrative power,restriction of power allocation on regional collaborative legislation,power effectiveness loss,and poor implementation of policies. The fundamental reason is the mutual constraints between politics and law,so it is necessary to re-examine the relationship between politics and law and understand their functional characteristics. In the framework of system and environment interpretation, politics and law are social subsystems with power and legislation as the core, which operate separately and have differentiated functions. Governmental administrative agreement is used as the channel between systems to maintain boundaries and form specific connections. The external environment stimulates the system through this special channel, and the system accepts useful information through independent selection, so that the system itself and the external environment continue to adapt. This process illustrates the formation of the coupling relationship between political and legal structures in the current local government cooperation in China. The formation of this relationship can provide a reasonable basis for the cooperation of local governments and promote the continuous perfection of the legal function.