建设工程项目行政审批制度改革研究

发布时间：2018-12-07 20:31

【摘要】：政府随着形势发展，为加强对建设工程的管理不断地出台和加强各类审批程序，也有不同时期各种简政放权改革的尝试。但现状是越改越复杂、越改越浪费，究其原因就在于建设工程项目行政审批的实施和改革没有与转变政府职能和其他配套改革结合起来统筹推进。本文从政府职能的转变是建设工程项目行政审批改革的本源,而建设工程项目行政审批制度又是政府职能转变的切入点这一角度，从以下三个部分进行论述：第一部分：建设工程项目行政审批制度的基本理论。建设工程行政审批属于行政审批的一类，建设工程审批制度是工程参建各方在项目实施的不同阶段按照法律法规要求，向政府管理工程项目的职能部门提起审批申请，政府职能部门因应申请进行审查批复等一系列行为规程和准则的总称,建设工程审批的性质是“解禁”。建设工程项目实施行政审批是资源合理配置的必然要求，是实现政府对公共安全保障的需要。建设工程审批制度设置理念和原则主要包括服务行政理念、责任政府理念、正当性程序原则、公众参与原则。第二部分：建设工程项目行政审批制度改革必要性。探讨建设工程项目审批制度改革的历程、现状和存在问题。现在工程建设项目审批流程可分为立项审批、用地审批、建设方案审批、招标审批和施工报建审批五个阶段。基本还是沿用互为前置，层层审批，简单地不断增加审批或备案来应对日益复杂的管理局面，现在建设工程项目行政审批手续的繁琐程度已达到高峰。建筑工程项目行政审批制度的改革不仅在宏观上事关国家经济发展和政府职能的转变，同时在微观上对经济活动的影响巨大，工程建设项目审批制度新一轮的改革已迫在眉睫。第三部分：建设工程项目审批制度改革的构想。历次建设工程项目行政审批改革关注的主要是审批事项的撤销与减少的数量，审批流程和时间的压缩等属于物理组合的变化，并没有从根本上去思考建设工程行政审批的价值。改革必须从审批价值的实现来指导建设工程项目行政审批改革才能根本上回答了为什么改，怎么改，改得好不好这些关键问题。建设工程行政审批制度改革有两种模式，一种是从中央层面设置全国统一要求改革的模式，另外一种是先从局部地方先行先试开始继而推动全国性改革的模式，两种模式各有优缺点。根据我国的实际国情，地方探索型的改革更容易找到突破口，，特别可充分运用特区立法的立法优势结合中央政府给予的政策优势先行先试，探索改革，积累经验为全国的改革提供参考。以政府与市场边界的理论再造审批流程，以政府服务理念为原则，采用互联网先进技术优化审批的运行机制。
[Abstract]:With the development of the situation, in order to strengthen the management of construction projects and strengthen the examination and approval procedures, there are also various attempts to reform the decentralization of government in different periods. However, the present situation is that the reform becomes more and more complex and more wasteful. The reason lies in the fact that the implementation and reform of administrative examination and approval of construction project has not been integrated with the transformation of government functions and other supporting reforms. From the point of view that the transformation of government functions is the source of the reform of administrative examination and approval of construction projects, and the system of administrative examination and approval of construction projects is the starting point of the transformation of government functions, From the following three parts: the first part: the basic theory of construction project administrative examination and approval system. The administrative examination and approval of construction projects belongs to the category of administrative examination and approval. The system of examination and approval of construction projects is that the parties involved in the construction projects file applications for examination and approval to the functional departments of the government in charge of the projects in accordance with the requirements of laws and regulations at different stages of the implementation of the projects. The general name of a series of codes of conduct and codes of conduct, such as examination and approval of government departments in response to applications, is that the nature of construction project approval is "lifting the ban". The implementation of administrative examination and approval of construction projects is the inevitable requirement of rational allocation of resources and the need of the government to realize the public security. The idea and principle of construction project examination and approval system mainly include service administration idea, responsibility government idea, legitimate procedure principle and public participation principle. The second part: the necessity of reform of administrative examination and approval system of construction project. This paper probes into the course, present situation and existing problems of the reform of the examination and approval system for construction projects. At present, the approval process of construction projects can be divided into five stages: project approval, land use approval, construction project approval, tender approval and construction approval. Basically still using each other as the leading, layers of examination and approval, simply increasing the approval or record to cope with the increasingly complex management situation, now the construction project administrative examination and approval procedures have reached a peak. The reform of administrative examination and approval system of construction project is not only related to the national economic development and the transformation of government functions, but also has a great impact on economic activities in the micro level. A new round of reform of the examination and approval system of construction project is imminent. The third part: the conception of the reform of the examination and approval system of construction project. The previous reform of administrative examination and approval of construction project is mainly concerned with the amount of revocation and reduction of the items of approval, the compression of approval process and time is the change of physical combination, and the value of administrative examination and approval of construction project has not been considered fundamentally. The reform must guide the reform of administrative examination and approval of construction project from the realization of the value of examination and approval in order to answer the key questions of why, how and whether the reform is good or not. There are two models for the reform of the administrative examination and approval system for construction projects. One is to set up a national unified model for reform at the central level, and the other is to first try out the local areas first and then promote the national reform. The two models have their own advantages and disadvantages. According to the actual situation of our country, it is easier to find a breakthrough in local exploratory reform. In particular, we can make full use of the legislative advantages of the special zone legislation and combine the policy advantages given by the central government to first try and explore the reform. Accumulation of experience to provide a reference for national reform. Based on the theory of the boundary between government and market, this paper reconstructs the approval process, takes the concept of government service as the principle, and optimizes the operation mechanism of examination and approval by using the advanced technology of the Internet.
【学位授予单位】：吉林大学
【学位级别】：硕士
【学位授予年份】：2013
【分类号】：D922.1

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