从调解到大调解：制度调适及其效果

发布时间：2018-02-01 05:36

本文关键词： 调解大调解制度调适维稳　出处：《复旦大学》2012年硕士论文　论文类型：学位论文

【摘要】：以市场经济为导向的改革开放为中国社会的多元化做出了贡献,令人惊叹的经济奇迹就直接得益于这种多元化。但是,另一方面,由于社会控制的松动,多元化又诱发了大量的罪案和群体性事件。它们向公共秩序的维护提出了挑战。国家应对不稳定的政策很多,其中,改革传统的调解制度以适应日益严峻的维稳压力,是一项引人注目的工作。盛行于当代的调解制度在延安时期就有实践,正式制度化则始于1954年《人民调解委员会暂行组织通则》的颁布。在改革开放以前,调解在基层社会担纲着重要的解纷功能,这些功能既有社会的也有政治的。早在上世纪60年代,有学者就撰文指出,调解是中国共产党贯彻自己政治主张的重要途径,调解制度贯彻共产党改造社会的政治功能远远超过调解制度解决纠纷的社会功能；通过建立普遍的调解制度,国家和社会就被紧密地整合在一起,使得国家机构较之传统中国具有更强的控制力。然而,90年代以来,中国社会发生了巨大的变化,各种社会关系始终处于解体与重建中：一方面,传统的社会控制手段逐渐乏力,对社会秩序的维护效力正在下降；另一方面,转型社会的利益分化越益多元,社会不平等加剧。这些变化都向传统的调解制度提出了挑战。 “大调解”改革是国家基于对社会秩序的担忧而作出的积极回应。“大调解”的制度改革的核心内容包括整合传统的调解形式,由党委和政府统一领导,强化司法机关的调解职能,扩大行政机构的调解权限,等等。大调解机制自基层肇始,随着中央相关文件的下发和推广,大调解继而作为一项运动在全国范围内展开。2011年4月,中共中央社会治安综合治理委员会、最高人民法院、最高人民检察院等16部委联合印发了《关于深入推进矛盾纠纷大调解工作的指导意见》,标志着大调解工作被全国化、制度化。按照学者的理解,大调解与传统调解的不同之处在于：前者突破了过去人民调解由司法行政部门归口管理的体制限制,形成了党委政府统一领导、政法综治牵头协调、调处中心具体负责、司法行政部门业务指导、职能部门共同参与、社会各界整体联动的社会矛盾调解新格局。然而,作为一项维护政治稳定的基本政策,大调解所遵循的解纷标准以及由此承载的社会功能,从调解制度诞生直到今天,实则自始自终贯彻着国家的政治目的。“大调解”的改革并没能实现对传统调解的制度超越,不同之处在于,它比传统的调解形式更具有强制性,范围更广,渗透更深。这种制度调适对中国正在推行的市场经济改革、司法改革以及政治发展,都会带来某些消极的、有悖初衷的后果。基于这种考虑,本文对大调解的改革提出如下几点对策建议：政府应当有序地从调解过程中撤出,由司法机关承担更多的解纷任务,将调解行为尽可能地纳入法治轨道；鼓励更多的民间机构从事底层社会矛盾的调解工作,使调解机构中立化,减少对政府的依附；减少对民间的渗透,减少对矛盾纠纷的干预,发挥草根社会单元的作用,让社会自我消化矛盾,由此培养社会自我管理的能力。
[Abstract]:With the market oriented reform has contributed to the diversification of social Chinese, amazing economic miracle will directly benefit from this diversification. But, on the other hand, due to loosening of social control, diversification and induced a large number of events and crime groups. They put forward a challenge to the maintenance of public order of the country. To deal with the instability of many policies, among them, the reform of the traditional mediation system in order to adapt to the increasingly severe pressure dimension stability, is an impressive work.
Popular in the contemporary conciliation system in Yanan during the period of practice, was institutionalized in 1954 "people's mediation committee issued interim organization general >. Before the reform and opening up, mediation in rural society featuring the important functions of dispute resolution, the function of both social and political. In the early 60s, a scholars have pointed out that mediation is an important way to implement their own Chinese Communist political opinion, implement the mediation system transformation of the Communist Party of social political function is far more than the mediation system to resolve disputes through the establishment of universal social function; the mediation system, the state and society are closely together, making the national institutions has more than the traditional China control. However, since 90s, great changes have taken place in China society, all kinds of social relations is always in disintegration and reconstruction: on the one hand, the traditional The means of social control are gradually weakening, and the effectiveness of maintaining social order is decreasing. On the other hand, the interests of social transformation in the transformation society are more diversified and the social inequality is increasing. All these changes have challenged traditional mediation system.
The "big mediation" reform is a positive response to the social order based on national concerns made. "The core content of reform of the system of mediation" includes the integration of traditional forms of mediation, the unified leadership of the Party committee and government, strengthen the judicial mediation function, expand the administrative mediation authority, from the grass-roots mediation mechanism and so on. With the onset, development and promotion of the relevant documents under the mediation and then as a campaign launched in April.2011 in the country, the Committee of the CPC Central Committee for comprehensive management of social security, the Supreme People's court, the Supreme People's Procuratorate and other 16 ministries jointly issued "guidance on about advancing the disputes mediation work. Marked by the national mediation work, institutionalization. In accordance with the understanding of different scholars, mediation and traditional mediation is a breakthrough in the past: the former people's mediation by the judicial The system of the administrative department of centralized management, the formation of the unified leadership of the Party committee and government, and comprehensive management of lead coordination, mediation center responsible for judicial and administrative departments, business guidance, participation of departments, the new pattern of social contradictions mediation community interaction.
However, as a basic policy to maintain political stability, followed by the mediation dispute resolution and the standard of the social functions of the mediation system from birth until today, actually all along to implement a national political purpose. Reform of "mediation" and failed to achieve the traditional mediation system beyond, the difference is that it with more than a traditional form of mandatory mediation, a wider range, greater penetration. The market economy reform this system adjustment to the Chinese is carrying out the judicial reform and political development, will bring some negative consequences, against the original. Based on this consideration, this paper puts forward reform of mediation following suggestions: the government should be orderly from the process of mediation withdrawal by the judicial organ to undertake more dispute mediation task, behavior as much as possible into the orbit of rule of law; to encourage private institutions more In the bottom of the social conflict mediation, the mediation mechanism of neutrality, less dependent on government; reduce the permeability of the folk, to reduce conflicts and disputes play intervention, grass-roots social unit, social self digestion contradiction, thus to cultivate the ability of social self management.

【学位授予单位】：复旦大学
【学位级别】：硕士
【学位授予年份】：2012
【分类号】：D926

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