破解基层执法碎片化困境的关键，不仅在于执法事项的下沉，更在于推动执法人员深度融入基层治理体系。本文以整体政府理论为分析框架，基于浙江省“县属乡用共管”模式的实践，揭示下沉执法人员从“物理聚合”向“化学融合”转化的三重机制：以“县属”所承载的结构性嵌入，消解管理权威与身份认同之间的脱节；以“共管”所激发的激励性驱动，化解条线指令与属地需求之间的功能冲突；以“乡用”所凝聚的文化性融合，推动心理契约从交易型向关系型升华。该模式延展了整体政府理论的解释边界，也为构建基层行政执法共同体提供了可操作的制度化路径和新的理论参照。

The key to resolving the fragmentation of law enforcement at the grassroots level lies not only in decentralizing law enforcement responsibilities but also in promoting the deep integration of law enforcement personnel into the grassroots governance system. Using the theory of the “holistic government” as an analytical framework and drawing on the practical experience of Zhejiang Province’s “County affiliation, township use, and joint management” model, this article reveals the three mechanisms through which the decentralization of law enforcement personnel transitions from “physical aggregation” to “chemical integration”: the structural embedding embodied by “county affiliation” resolves the disconnect between managerial authority and identity; the incentive-driven approach spurred by “joint management” to resolve functional conflicts between sectoral directives and local needs; and the cultural integration fostered by “township use” to elevate psychological contracts from transactional to relational. This model not only expands the explanatory scope of the “holistic government” theory but also provides an actionable institutional pathway and a new theoretical reference for building a grassroots administrative law enforcement community.

D922.1；D630

国家社会科学基金重点项目（20AZD030）