论权力清单的性质及制度构建

发布时间：2018-06-15 11:16

  本文选题：权力清单 + 行政自制　； 参考：《南京大学》2017年硕士论文

【摘要】：权力清单是我国政府在全面推进依法治国、全面深化改革的进程中一次有益尝试,也是切实转变政府职能、推进行政体制改革的一项重要举措。自权力清单萌芽到现在,各级各地政府及其工作部门都对权力清单的建设投入了很大的热情。在理论层面,许多学者也从各自的专业领域和角度为权力清单的研究做出了贡献。可以说,目前我国政府权力清单的建设取得了非常好的成绩。但是同时我们也必须承认,权力清单作为一项年轻的制度,在目前的理论和实践中仍然存在着一些问题。从理论上来看,现有研究对于权力清单的定性并不统一,而且权力清单在实际的推行过程中也存在一些困难和不足,这些都不利于权力清单功能的有效发挥。如果这些问题得不到解决,后续的一系列制度建设也没有办法很有效的展开,权力清单的推行和完善方面就会存在一些困难,那么就很可能沦为"纸面上的清单"。因此,本文从权力清单的实践出发,借鉴理论界对权力清单的研究成果,将权力清单定位为一种行政自制规则,兼具组织性行政规则和替代性行政规则的属性。并立足于行政自制规则的性质,借鉴同属行政规则范畴内的裁量基准的研究成果,提出构建权力清单制度的设想。裁量基准制度的基本内容主要分为两大部分,一是裁量基准自身的建构必须严格依据法律,以法律规定为导向。二是在自制的范畴内引入他制的因素,包括公众参与裁量基准的制定、不履行裁量基准的责任追究制度、说明理由制度以及对裁量基准进行司法审查等内容。在构建权力清单制度的时候也可以从中吸取经验,即虽然作为行政自制规则的权力清单强调主体出于自愿控制自己的行为,但是并不代表可以脱离监督机制的约束。因此,在权力清单制度的构建上,既要规范权力清单的自我构建,又要引入"他制"的因素,寻求自制和他制的平衡。在权力清单自身的建设上,要严把职权法定这一关键,规范权力清单的各项构成要素,不仅要从权力梳理上下功夫,还要注重权力清单的动态更新和调整,确保清单内的每项权力都于法有据。同时,为了克服其"规则之治"与"自我控制"的固有局限性,还要完善权力清单的一系列制约机制。包括行政系统内部的制约和行政系统外部的制约两条路径。行政系统内部的制约机制主要包括建立起配套的责任清单、绩效考核机制、行政复议等内容。行政系统外部的制约主要是对权力清单的合法性进行司法审查。希望通过这一系列制度的构建,形成内外合力,能够将权力清单的运行限制在法治的轨道内,防止其偏离设计目标,充分发挥其应有的功能。
[Abstract]:The list of powers is a beneficial attempt in the process of promoting the rule of law and deepening the reform in an all-round way. It is also an important measure to change the functions of the government and promote the reform of the administrative system. From the beginning of the list of powers to now, all levels of government and its departments have invested a lot of enthusiasm in the construction of the list of powers. At the theoretical level, many scholars have also contributed to the study of the list of powers from their respective fields and perspectives. Can say, at present our country government power list construction has obtained very good result. But at the same time, we must also admit that as a young system, there are still some problems in current theory and practice. In theory, the qualitative analysis of the power list is not uniform, and there are some difficulties and deficiencies in the implementation of the power list, which is not conducive to the effective use of the power list function. If these problems can not be solved, the subsequent construction of a series of systems can not be carried out very effectively, and there will be some difficulties in the implementation and perfection of the power list, which is likely to be reduced to a "list on paper". Therefore, starting from the practice of the list of powers and drawing on the research results of the theoretical circle on the list of powers, this paper defines the list of power as an administrative self-made rule, which has the attributes of both the organized administrative rule and the alternative administrative rule. Based on the nature of the administrative self-made rules and the research results of the discretion benchmark in the same category of administrative rules, this paper puts forward the idea of constructing the power list system. The basic content of the system is divided into two parts. One is that the construction of the discretion standard itself must be strictly based on the law and be guided by the law. The second is the introduction of other factors in the category of self-control, including the public participation in the formulation of the discretion benchmark, the accountability system for non-performance of the discretion benchmark, the explanation of the reasons system and the judicial review of the discretion benchmark, and so on. In the process of constructing the power list system, we can also draw lessons from it. That is, although the power list, as the rule of administrative self-control, emphasizes the voluntary control of the subject's own behavior, it does not mean that the power list can be separated from the restriction of the supervision mechanism. Therefore, in the construction of the power list system, we should not only regulate the self-construction of the power list, but also introduce the factor of "other system" to seek the balance between self-control and other system. In the construction of power list itself, it is necessary to strictly regulate the power and authority of the list of powers, and standardize the various elements of the power list, not only from the power combing, but also to pay attention to the dynamic updating and adjustment of the power list. Ensure that each of the powers on the list is substantiated by law. At the same time, in order to overcome its inherent limitation of "rule of rule" and "self-control", it is necessary to perfect a series of restriction mechanism of power list. Including administrative system internal constraints and administrative system external constraints two paths. The internal restriction mechanism of the administrative system mainly includes establishing the supporting responsibility list, the performance appraisal mechanism, the administrative reconsideration and so on. The external restriction of the administrative system is the judicial review of the legality of the list of powers. It is hoped that through the construction of this series of systems, the power list can be restricted to the track of rule by law, which can prevent it from deviating from the design objective and give full play to its proper function.
【学位授予单位】：南京大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：D922.1
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本文编号：2021822