解决争议功能视角下的行政复议调解制度研究

发布时间：2018-11-08 15:31

【摘要】：《行政复议法》把行政复议制度的功能定位在内部监督，，从而使得行政复议活动的目标是纠正被申请人违法或不当的行政行为，这就容易忽视申请人在行政复议活动中的一些权利，比如知情权、参与权、监督权等权利，导致行政复议活动的公信力和权威性大大降低，同时致使行政复议制度经济、便捷、彻底等优势没有得到充分发挥。而以解决争议为功能的重新定位，很好地克服了上述缺陷，是行政复议制度准司法性质的客观体现。因为该功能定位具有基础性和包容性：在实现解决行政争议功能的过程中，客观上必然包含了对被申请人行政行为的监督以及对申请人权利的救济等功能；而且，内部监督、权利救济以及其它功能的实现也有助于争议的解决，前后是相辅相成、相互促进的关系。调解作为社会多元化纠纷解决的一种方式,因其在私权处分方面具有成本低、高效率、维持当事人关系良性发展等特点而在私法领域得到充分发展。与此同时，在实践的基础上，调解在行政复议活动也得到了较多使用和发展，并成为行政复议制度发挥解决行政争议功能的重要途径之一。但是，1990年的《行政复议条例》（已废止）规定，行政复议机关审理复议案件，不适用调解。之后1999年《行政复议法》虽然取消了这一规定，但对能否适用调解未作出明确的规定。根据一般理解，未经法律授权，行政机关在行政复议中不可适用调解。“坚持有错必纠”是不适用调解的精神体现。然而，在具体的办案中，行政复议机关已经突破复议活动不适用调解的限制，出现“变相调解”的现象，即协调办案。随着协调办案在行政复议实践中取得较好的效果，2007年出台的《行政复议法实施条例》第50条开始确立行政复议调解制度。通过对复议案例的分析总结，发现行政复议调解制度在提高行政复议活动效率、彻底化解矛盾、监督行政行为以及保障申请人的合法权益等方面发挥了巨大的作用。但是，由于行政复议调解制度尚存在法律依据不足、具体适用范围较狭窄、适用范围的程序没有具体规则以及行政复议调解书的效力与救济途径缺失等缺陷，使得行政复议调解制度本身应有的作用未完全发挥出来。因此，为了更好发挥行政复议制度解决争议的功能，就需要对行政复议调解制度的相关内容进行细化和完善。比如修改《行政复议法》，为行政复议调解制度提供法律依据；一定程度上扩大复议调解制度适用的范围；制定适当的复议调解的程序规则；完善行政复议调解书的救济制度。
[Abstract]:The Administrative Review Law defines the function of the administrative reconsideration system as the internal supervision, so that the object of the administrative reconsideration activity is to correct the illegal or improper administrative behavior of the respondent. This makes it easy to ignore some of the rights of the applicant in the administrative reconsideration activities, such as the right to know, the right to participate, the right to supervise, and so on, which leads to a great decline in the credibility and authority of the administrative reconsideration activities, and at the same time makes the administrative review system economical and convenient. Thorough wait for advantage is not given full play. The reorientation of the function of resolving disputes overcomes the above defects and is the objective embodiment of the quasi-judicial nature of administrative reconsideration system. Because the function orientation is basic and inclusive: in the process of realizing the function of resolving administrative disputes, the function of supervising the administrative act of the respondent and the relief of the applicant's right must be included objectively; Moreover, the realization of internal supervision, right relief and other functions is also helpful to the settlement of disputes. Mediation, as a way to resolve disputes in a pluralistic society, has been fully developed in the field of private law because of its low cost, high efficiency and good development of the relationship between the parties. At the same time, on the basis of practice, mediation has been more used and developed in administrative reconsideration activities, and has become one of the important ways for administrative reconsideration system to play its role in resolving administrative disputes. However, the 1990 regulations on Administrative Review (abolished) stipulate that mediation shall not be applicable to administrative reconsideration organs in handling reconsideration cases. After that, although the Administrative Review Law of 1999 abolished this provision, there was no clear provision as to whether mediation could be applied. According to the general understanding, the administrative organ cannot apply mediation in administrative reconsideration without legal authorization. The spirit of not applying mediation is to insist on correcting mistakes. However, in the specific handling of cases, the administrative review organs have broken through the limitation of non-application of mediation in reconsideration activities, and the phenomenon of "disguised mediation", that is, coordinated handling of cases, appears. With the coordination of handling cases in the practice of administrative review achieved better results, in 2007 "Administrative Review Law implementation regulations" Article 50 began to establish the administrative reconsideration mediation system. Through the analysis and summary of the cases of reconsideration, it is found that the mediation system of administrative reconsideration has played a great role in improving the efficiency of administrative reconsideration activities, thoroughly resolving contradictions, supervising administrative actions and safeguarding the legitimate rights and interests of the applicants. However, due to the lack of legal basis, the specific scope of application is relatively narrow, there are no specific rules for the procedure of the scope of application, and the effectiveness of the mediation document of administrative reconsideration and the lack of remedies, etc. So that the administrative reconsideration mediation system itself should not fully play its role. Therefore, in order to give full play to the function of administrative reconsideration system in resolving disputes, it is necessary to refine and perfect the relevant contents of administrative reconsideration mediation system. For example, to amend the Administrative reconsideration Law to provide the legal basis for the administrative reconsideration mediation system; to a certain extent, to expand the scope of application of the reconsideration mediation system; to formulate appropriate procedural rules for reconsideration mediation; and to improve the relief system of the administrative reconsideration mediation document.
【学位授予单位】：华东政法大学
【学位级别】：硕士
【学位授予年份】：2014
【分类号】：D922.11

【共引文献】